This message is the first of several which I shall send to Congress
during the interval between the opening of its regular session and its
adjournment for the Christmas holidays. The amount of information to be
communicated as to the operations of the Government, the number of important
subjects calling for comment by the Executive, and the transmission to
Congress of exhaustive reports of special commissions, make it impossible
to include in one message of a reasonable length a discussion of the topics
that ought to be brought to the attention of the National Legislature at
its first regular session.

THE ANTI-TRUST LAW-THE SUPREME COURT DECISIONS.

In May last the Supreme Court handed down decisions in the suits in
equity brought by the United States to enjoin the further maintenance of
the Standard Oil Trust and of the American Tobacco Trust, and to secure
their dissolution. The decisions are epoch-making and serve to advise the
business world authoritatively of the scope and operation of the anti-trust
act of 1890. The decisions do not depart in any substantial way from the
previous decisions of the court in construing and applying this important
statute, but they clarify those decisions by further defining the already
admitted exceptions to the literal construction of the act. By the decrees,
they furnish a useful precedent as to the proper method of dealing with
the capital and property of illegal trusts. These decisions suggest the
need and wisdom of additional or supplemental legislation to make it easier
for the entire business community to square with the rule of action and
legality thus finally established and to preserve the benefit, freedom,
and spur of reasonable competition without loss of real efficiency or progress.

NO CHANGE IN THE RULE OF DECISION-MERELY IN ITS FORM OF EXPRESSION.

The statute in its first section declares to be illegal "every contract,
combination in the form of trust or otherwise, or conspiracy, in restraint
of trade or commerce among the several States or with foreign nations,"
and in the second, declares guilty of a misdemeanor "every person who shall
monopolize or attempt to monopolize or combine or conspire with any other
person to monopolize any part of the trade or commerce of the several States
or with foreign nations."

In two early cases, where the statute was invoked to enjoin a transportation
rate agreement between interstate railroad companies, it was held that
it was no defense to show that the agreement as to rates complained of
was reasonable at common law, because it was said that the statute was
directed against all contracts and combinations in restraint of trade whether
reasonable at common law or not. It was plain from the record, however,
that the contracts complained of in those cases would not have been deemed
reasonable at common law. In subsequent cases the court said that the statute
should be given a reasonable construction and refused to include within
its inhibition, certain contractual restraints of trade which it denominated
as incidental or as indirect.

These cases of restraint of trade that the court excepted from the operation
of the statute were instances which, at common law, would have been called
reasonable. In the Standard Oil and Tobacco cases, therefore, the court
merely adopted the tests of the common law, and in defining exceptions
to the literal application of the statute, only substituted for the test
of being incidental or indirect, that of being reasonable, and this, without
varying in the slightest the actual scope and effect of the statute. In
other words, all the cases under the statute which have now been decided
would have been decided the same way if the court had originally accepted
in its construction the rule at common law.

It has been said that the court, by introducing into the construction
of the statute common-law distinctions, has emasculated it. This is obviously
untrue. By its judgment every contract and combination in restraint of
interstate trade made with the purpose or necessary effect of controlling
prices by stifling competition, or of establishing in whole or in part
a monopoly of such trade, is condemned by the statute. The most extreme
critics can not instance a case that ought to be condemned under the statute
which is not brought within its terms as thus construed.

The suggestion is also made that the Supreme Court by its decision in
the last two cases has committed to the court the undefined and unlimited
discretion to determine whether a case of restraint of trade is within
the terms of the statute. This is wholly untrue. A reasonable restraint
of trade at common law is well understood and is clearly defined. It does
not rest in the discretion of the court. It must be limited to accomplish
the purpose of a lawful main contract to which, in order that it shall
be enforceable at all, it must be incidental. If it exceed the needs of
that contract, it is void.

The test of reasonableness was never applied by the court at common
law to contracts or combinations or conspiracies in restraint of trade
whose purpose was or whose necessary effect would be to stifle competition,
to control prices, or establish monopolies. The courts never assumed power
to say that such contracts or combinations or conspiracies might be lawful
if the parties to them were only moderate in the use of the power thus
secured and did not exact from the public too great and exorbitant prices.
It is true that many theorists, and others engaged in business violating
the statute, have hoped that some such line could be drawn by courts; but
no court of authority has ever attempted it. Certainly there is nothing
in the decisions of the latest two cases from which such a dangerous theory
of judicial discretion in enforcing this statute can derive the slightest
sanction.

FORCE AND EFFECTIVENESS OF STATUTE A MATTER OF GROWTH.

We have been twenty-one years making this statute effective for the
purposes for which it was enacted. The Knight case was discouraging and
seemed to remit to the States the whole available power to attack and suppress
the evils of the trusts. Slowly, however, the error of that judgment was
corrected, and only in the last three or four years has the heavy hand
of the law been laid upon the great illegal combinations that have exercised
such an absolute dominion over many of our industries. Criminal prosecutions
have been brought and a number are pending, but juries have felt averse
to convicting for jail sentences, and judges have been most reluctant to
impose such sentences on men of respectable standing in society whose offense
has been regarded as merely statutory. Still, as the offense becomes better
understood and the committing of it partakes more of studied and deliberate
defiance of the law, we can be confident that juries will convict individuals
and that jail sentences will be imposed.

THE REMEDY IN EQUITY BY DISSOLUTION.

In the Standard Oil case the Supreme and Circuit Courts found the combination
to be a monopoly of the interstate business of refining, transporting,
and marketing petroleum and its products, effected and maintained through
thirty-seven different corporations, the stock of which was held by a New
Jersey company. It in effect commanded the dissolution of this combination,
directed the transfer and pro rata distribution by the New Jersey company
of the stock held by it in the thirty-seven corporations to and among its
stockholders; and the corporations and individual defendants were enjoined
from conspiring or combining to restore such monopoly; and all agreements
between the subsidiary corporations tending to produce or bring about further
violations of the act were enjoined.

In the Tobacco case, the court found that the individual defendants,
twenty-nine in number, had been engaged in a successful effort to acquire
complete dominion over the manufacture, sale, and distribution of tobacco
in this country and abroad, and that this had been done by combinations
made with a purpose and effect to stifle competition, control prices, and
establish a monopoly, not only in the manufacture of tobacco, but also
of tin-foil and licorice used in its manufacture and of its products of
cigars, cigarettes, and snuffs. The ' tobacco suit presented a far more
complicated and difficult case than the Standard Oil suit for a decree
which would effectuate the will of the court and end the violation of the
statute. There was here no single holding company as in the case of the
Standard Oil Trust. The main company was the American Tobacco Company,
a manufacturing, selling, and holding company. The plan adopted to destroy
the combination and restore competition involved the redivision of the
capital and plants of the whole trust between some of the companies constituting
the trust and new companies organized for the purposes of the decree and
made parties to it, and numbering, new and old, fourteen.

SITUATION AFTER READJUSTMENT.

The American Tobacco Company (old), readjusted capital, $92, 000,000;
the Liggett & Meyers Tobacco Company (new), capital, $67,000,000; the
P. Lorillard Company (new), capital, $47,000,000; and the R. J. Reynolds
Tobacco Company (old), capital, $7,525,000, are chiefly engaged in the
manufacture and sale of chewing and smoking tobacco and cigars. The former
one tinfoil company is divided into two, one of $825,000 capital and the
other of $400,000. The one snuff company is divided into three companies,
one with a capital Of $15,000,000, another with a capital of $8,000,000,
and a third with a capital of $8,000,000. The licorice companies are two
one with a capital Of $5,758,300 and another with a capital of $200,000.
There is, also, the British-American Tobacco Company, a British corporation,
doing business abroad with a capital Of $26,000,000, the Porto Rican Tobacco
Company, with a capital of $1,800,000, and the corporation of United Cigar
Stores, with a capital of $9,000,000.

Under this arrangement, each of the different kinds of business will
be distributed between two or more companies with a division of the prominent
brands in the same tobacco products, so as to make competition not only
possible but necessary. Thus the smoking-tobacco business of the country
is divided so that the present independent companies have 21-39 per cent,
while the American Tobacco Company will have 33-08 per cent, the Liggett
& Meyers 20.05 per cent, the Lorillard Company 22.82 per cent, and
the Reynolds Company 2.66 per cent. The stock of the other thirteen companies,
both preferred and common, has been taken from the defendant American Tobacco
Company and has been distributed among its stockholders. All covenants
restricting competition have been declared null and further performance
of them has been enjoined. The preferred stock of the different companies
has now been given voting power which was denied it under the old organization.
The ratio of the preferred stock to the common was as 78 to 40. This constitutes
a very decided change in the character of the ownership and control of
each company.

In the original suit there were twenty-nine defendants who were charged
with being the conspirators through whom the illegal combination acquired
and exercised its unlawful dominion. Under the decree these defendants.
will hold amounts of stock in the various distributee companies ranging
from 41 per cent as a maximum to 28.5 per cent as a minimum, except in
the case of one small company, the Porto Rican Tobacco Company, in which
they will hold 45 per cent. The twenty-nine individual defendants are enjoined
for three years from buying any stock except from each other, and the group
is thus prevented from extending its control during that period. All parties
to the suit, and the new companies who are made parties are enjoined perpetually
from in any way effecting any combination between any of the companies
in violation of the statute by way of resumption of the old trust. Each
of the fourteen companies is enjoined from acquiring stock in any of the
others. All these companies are enjoined from having common directors or
officers, or common buying or selling agents, or common offices, or lending
money to each other.

SIZE OF NEW COMPANIES.

Objection was made by certain independent tobacco companies that this
settlement was unjust because it left companies with very large capital
in active business, and that the settlement that would be effective to
put all on an equality would be a division of the capital and plant of
the trust into small fractions in amount more nearly equal to that of each
of the independent companies. This contention results from a misunderstanding
of the anti-trust law and its purpose. It is not intended thereby to prevent
the accumulation of large capital in business enterprises in which such
a combination can secure reduced cost of production, sale, and distribution.
It is directed against such an aggregation of capital only when its purpose
is that of stifling competition, enhancing or controlling prices, and establishing
a monopoly. If we shall have by the decree defeated these purposes and
restored competition between the large units into which the capital and
plant have been divided, we shall have accomplished the useful purpose
of the statute.

CONFISCATION NOT THE PURPOSE OF THE STATUTE.

It is not the purpose of the statute to confiscate the property and
capital of the offending trusts. Methods of punishment by fine or imprisonment
of the individual offenders, by fine of the corporation or by forfeiture
of its goods in transportation, are provided, but the proceeding in equity
is a specific remedy to stop the operation of the trust by injunction and
prevent the future use of the plant and capital in violation of the statute.

EFFECTIVENESS OF DECREE.

I venture to say that not in the history of American law has a decree
more effective for such a purpose been entered by a court than that against
the Tobacco Trust. As Circuit judge Noyes said in his judgment approving
the decree:

" The extent to which it has been necessary to tear apart this combination
and force it into new forms with the attendant burdens ought to demonstrate
that the Federal anti-trust statute is a drastic statute which accomplishes
effective results; which so long as it stands on the statute books must
be obeyed, and which can not be disobeyed without incurring far-reaching
penalties. And, on the other hand, the successful reconstruction of this
organization should teach that the effect of enforcing this statute is
not to destroy, but to reconstruct; not to demolish, but to re-create in
accordance with the conditions which the Congress has declared shall exist
among the people of the United States."

COMMON STOCK OWNERSHIP.

It has been assumed that the present pro rata and common ownership in
all these companies by former stockholders of the trust would insure a
continuance of the same old single control of all the companies into which
the trust has by decree been disintegrated. This is erroneous and is based
upon the assumed inefficacy and innocuousness of judicial injunctions.
The companies are enjoined from cooperation or combination; they have different
managers, directors, purchasing and sales agents. If all or many of the
numerous stockholders, reaching into the thousands, attempt to secure concerted
action of the companies with a view to the control of the market, their
number is so large that such an attempt could not well be concealed, and
its prime movers and all its participants would be at once subject to contempt
proceedings and imprisonment of a summary character. The immediate result
of the present situation will necessarily be activity by all the companies
under different managers, and then competition must follow, or there will
be activity by one company and stagnation by another. Only a short time
will inevitably lead to a change in ownership of the stock, as all opportunity
for continued cooperation must disappear. Those critics who speak of this
dis

integration in the trust as a mere change of garments have not given
consideration to the inevitable working of the decree and understand little
the personal danger of attempting to evade or set at naught the solemn
injunction of a court whose object is made plain by the decree and whose
inhibitions are set forth with a detail and comprehensiveness

VOLUNTARY REORGANIZATIONS OF OTHER TRUSTS AT HAND.

The effect of these two decisions has led to decrees dissolving the
combination of manufacturers of electric lamps, a southern wholesale grocers'
association, an interlocutory decree against the Powder Trust with directions
by the circuit court compelling dissolution, and other combinations of
a similar history are now negotiating with the Department of justice looking
to a disintegration by decree and reorganization in accordance with law.
It seems possible to bring about these reorganizations without general
business disturbance.

MOVEMENT FOR REPEAL OF THE ANTI-TRUST LAW.

But now that the anti-trust act is seen to be effective for the accomplishment
of the purpose of its enactment, we are met by a cry from many different
quarters for its repeal. It is said to be obstructive of business progress
. to be an attempt to restore old-fashioned methods of destructive competition
between small units, and to make impossible those useful combinations of
capital and the reduction of the cost of production that are essential
to continued prosperity and normal growth.

In the recent decisions the Supreme Court makes clear that there is
nothing in the statute which condemns combinations of capital or mere bigness
of plant organized to secure economy in production and a reduction of its
cost. It is only when the purpose or necessary effect of the organization
and maintenance of the combination or the aggregation of immense size are
the stifling of competition, actual and potential, and the enhancing of
prices and establishing a monopoly, that the statute is violated. Mere
size is no sin against the law. The merging of two or more business plants
necessarily eliminates competition between the units thus combined, but
this elimination is in contravention of the statute only when the combination
is made for purpose of ending this particular competition in order to secure
control of, and enhance, prices and create a monopoly.

LACK OF DEFINITENESS IN THE STATUTE.

The complaint is made of the statute that it is not sufficiently definite
in its description of that which is forbidden, to enable business men to
avoid its violation. The suggestion is, that we may have a combination
of two corporations, which may run on for years, and that subsequently
the Attorney General may conclude that it wa's a violation of the statute,
and that which was supposed by the combiners to be innocent then turns
out to be a combination in violation of the statute. The answer to this
hypothetical case is that when men attempt to amass such stupendous capital
as will enable them to suppress competition, control prices and establish
a monopoly, they know the purpose of their acts. Men do not do such a thing
without having it clearly in mind. If what they do is merely for the purpose
of reducing the cost of production, without the thought of suppressing
competition by use of the bigness of the plant they are creating, then
they can not be convicted at the time the union is made, nor can they be
convicted later, unless it happen that later on they conclude to suppress
competition and take the usual methods for doing so, and thus establish
for themselves a monopoly. They can, in such a case, hardly complain if
the motive which subsequently is disclosed is attributed by the court to
the original combination.

NEW REMEDIES SUGGESTED.

Much is said of the repeal of this statute and of constructive legislation
intended to accomplish the purpose and blaze a clear path for honest merchants
and business men to follow. It may be that such a plan will be evolved,
but I submit that the discussions which have been brought out in recent
days by the fear of the continued execution of the anti-trust law have
produced nothing but glittering generalities and have offered no line of
distinction or rule of action as definite and as clear as that which the
Supreme Court itself lays down in enforcing the statute.

SUPPLEMENTAL LEGISLATION NEEDED--NOT REPEAL OR AMENDMENT.

I see no objection-and indeed I can see decided advantages-in the enactment
of a law which shall describe and denounce methods of competition which
are unfair and are badges of the unlawful purpose denounced in the anti-trust
law. The attempt and purpose to suppress a competitor by underselling him
at a price so unprofitable as to drive him out of business, or the making
of exclusive contracts with customers under which they are required to
give up association with other manufacturers, and numerous kindred methods
for stifling competition and effecting monopoly, should be described with
sufficient accuracy in a criminal statute on the one hand to enable the
Government to shorten its task by prosecuting single misdemeanors instead
of an entire conspiracy, and, on the other hand, to serve the purpose of
pointing out more in detail to the business community what must be avoided.

FEDERAL INCORPORATION RECOMMENDED.

In a special message to Congress on January 7, 1910, I ventured to point
out the disturbance to business that would probably attend the dissolution
of these offending trusts. I said:

"But such an investigation and possible prosecution of corporations
whose prosperity or destruction affects the comfort not only of stockholders
but of millions of wage earners, employees, and associated tradesmen must
necessarily tend to disturb the confidence of the business community, to
dry up the now flowing sources of capital from its places of hoarding,
and produce a halt in our present prosperity that will cause suffering
and strained circumstances among the innocent many for the faults of the
guilty few. The question which I wish in this message to bring clearly
to the consideration and discussion of Congress is whether, in order to
avoid such a possible business danger, something can not be done by which
these business combinations may be offered a means, without great financial
disturbance, of changing the character, organization, and extent of their
business into one within the lines of the law under Federal control and
supervision, securing compliance with the anti-trust statute.

"Generally, in the industrial combinations called 'trusts,' the principal
business is the sale of goods in many States and in foreign markets; in
other words, the interstate and foreign business far exceeds the business
done in any one State. This fact will justify the Federal Government in
granting a Federal charter to such a combination to make and sell in interstate
and foreign commerce the products of useful manufacture under such limitations
as will secure a compliance with the anti-trust law. It is possible so
to frame a statute that while it offers protection to a Federal company
against harmful, vexatious, and unnecessary invasion by the States, it
shall subject it to reasonable taxation and control by the States with
respect to its purely local business. * * *

"Corporations organized under this act should be prohibited from acquiring
and holding stock in other corporations (except for special reasons, upon
approval by the proper Federal authority), thus avoiding the creation under
national auspices of the holding company with subordinate corporations
in different States, which has been such an effective agency in the creation
of the great trusts and monopolies.

"If the prohibition of the anti-trust act against combinations in restraint
of trade is to be effectively enforced, it is essential that the National
Government shall provide for the creation of national corporations to carry
on a legitimate business throughout the United States. The conflicting
laws of the different States of the Union with respect to foreign corporations
make it difficult, if not impossible, for one corporation to comply with
their requirements so as to carry on business in a number of different
States."

I renew the recommendation of the enactment of a general law providing
for the voluntary formation of corporations to engage in trade and commerce
among the States and with foreign nations. Every argument which was then
advanced for such a law, and every explanation which was at that time offered
to possible objections, have been confirmed by our experience since the
enforcement of the antitrust, statute has resulted in the actual dissolution
of active commercial organizations.

It is even more manifest now than it was then that the denunciation
of conspiracies in restraint of trade should not and does not mean the
denial of organizations large enough to be intrusted with our interstate
and foreign trade. It has been made more clear now than it was then that
a purely negative statute like the anti-trust law may well be supplemented
by specific provisions for the building up and regulation of legitimate
national and foreign commerce.

GOVERNMENT ADMINISTRATIVE EXPERTS NEEDED TO AID COURTS IN TRUST DISSOLUTIONS.

The drafting of the decrees in the dissolution of the present trusts,
with a view to their reorganization into legitimate corporations, has made
it especially apparent that the courts are not provided with the administrative
machinery to make the necessary inquiries preparatory to reorganization,
or to pursue such inquiries, and they should be empowered to invoke the
aid of the Bureau of Corporations in determining the suitable reorganization
of the disintegrated parts. The circuit court and the Attorney General
were greatly aided in framing the decree in the Tobacco Trust dissolution
by an expert from the Bureau of Corporations.

FEDERAL CORPORATION COMMISSION PROPOSED.

I do not set forth in detail the terms and sections of a statute which
might supply the constructive legislation permitting and aiding the formation
of combinations of capital into Federal corporations. They should be subject
to rigid rules as to their organization and procedure, including effective
publicity, and to the closest supervision as to the issue of stock and
bonds by an executive bureau or commission in the Department of Commerce
and Labor, to which in times of doubt they might well submit their proposed
plans for future business. It must be distinctly understood that incorporation
under Federal law could not exempt the company thus formed and its incorporators
and managers from prosecution under the anti-trust law for subsequent illegal
conduct, but the publicity of its procedure and the opportunity for frequent
consultation with the bureau or commission in charge of the incorporation
as to the legitimate purpose of its transactions would offer it as great
security against successful prosecutions for violations of the law as would
be practical or wise.

Stich a bureau or commission might well be invested also with the duty
already referred to, of aiding courts in the dissolution and recreation
of trusts within the law. it should be an executive tribunal of the dignity
and power of the Comptroller of the Currency or the Interstate Commerce
Commission, which now exercise supervisory power over important classes
of corporations under Federal regulation.

The drafting of such a Federal incorporation law would offer ample opportunity
to prevent many manifest evils in corporate management to-day, including
irresponsibility of control in the hands of the few who are not the real
owners.

INCORPORATION VOLUNTARY.

I recommend that the Federal charters thus to be granted shall be voluntary,
at least until experience justifies mandatory provisions. The benefit to
be derived from the operation of great businesses under the protection
of such a charter would attract all who are anxious to keep within the
lines of the law. Other large combinations that fail to take advantage
of the Federal incorporation will not have a right to complain if their
failure is ascribed to unwillingness to submit their transactions to the
careful official. scrutiny, competent supervision, and publicity attendant
upon the enjoyment of such a charter.

ONLY SUPPLEMENTAL LEGISLATION NEEDED.

The opportunity thus suggested for Federal incorporation, it seems tome,
is suitable constructive legislation needed to facilitate the squaring
of great industrial enterprises to the rule of action laid down by the
anti-trust law. This statute as construed by the Supreme Court must continue
to be the line of distinction for legitimate business. It must be enforced,
unless we are to banish individualism from all business and reduce it to
one common system of regulation or control of prices like that which now
prevails with respect to public utilities, and which when applied to all
business would be a long step toward State socialism.

IMPORTANCE OF THE ANTI-TRUST ACT.

The anti-trust act is the expression of the effort of a freedomloving
people to preserve equality of opportunity. It is the result of the confident
determination of such a people to maintain their future growth by preserving
uncontrolled and unrestricted the enterprise of the individual, his industry,
his ingenuity, his intelligence, and his independent courage.

For twenty years or more this statute has been upon the statute book.
All knew its general purpose and approved. Many of its violators were cynical
over its assumed impotence. It seemed impossible of enforcement. Slowly
the mills of the courts ground, and only gradually did the majesty of the
law assert itself. Many of its statesmen-authors died before it became
a living force, and they and others saw the evil grow which they had hoped
to destroy. Now its efficacy is seen; now its power is heavy; now its object
is near achievement. Now we hear the call for its repeal on the plea that
it interferes with business prosperity, and we are advised in most general
terms, how by some other statute and in some other way the evil we are
just stamping out can be cured, if we only abandon this work of twenty
years and try another experiment for another term of years.
It is said that the act has not done good. Can this be said in the
face of the effect of the Northern Securities decree? That decree was in
no way so drastic or inhibitive in detail as either the Standard Oil decree
or the Tobacco decree; but did it not stop for all time the then powerful
movement toward the control of all the railroads of the country in a single
hand? Such a one-man power could not have been a healthful influence in
the Republic, even though exercised under the general supervision of an
interstate commission.

Do we desire to make such ruthless combinations and monopolies lawful?
When all energies are directed, not toward the reduction of the cost of
production for the public benefit by a healthful competition, but toward
new ways and means for making permanent in a few hands the absolute control
of the conditions and prices prevailing in the whole field of industry,
then individual enterprise and effort will be paralyzed and the spirit
of commercial freedom will be dead.

PART II.
[On Foreign Relations.]

THE WHITE HOUSE, December 7, 1911
To the Senate and House of Representatives:
The relations of the United States with other countries have continued
during the past twelve months upon a basis of the usual good will and friendly
intercourse.

ARBITRATION.

The year just passed marks an important general movement on the part
of the Powers for broader arbitration. In the recognition of the manifold
benefits to mankind in the extension of the policy of the settlement of
international disputes by arbitration rather than by war, and in response
to a widespread demand for an advance in that direction on the part of
the people of the United States and of Great Britain and of France, new
arbitration treaties were negotiated last spring with Great Britain and
France, the terms of which were de signed, as expressed in the preamble
of these treaties, to extend the scope and obligations of the policy of
arbitration adopted in our present treaties with those Governments To pave
the way for this treat with the United States, Great Britain negotiated
an important modification in its alliance with Japan, and the French Government
also expedited the negotiations with signal good will. The new treaties
have been submitted to the Senate and are awaiting its advice and consent
to their ratification. All the essentials of these important treaties have
long been known, and it is my earnest hope that they will receive prompt
and favorable action.

CLAIM OF ALSOP & CO. SETTLED.

I am glad to report that on July 5 last the American claim of Alsop
& Co. against the Government of Chile was finally disposed of by the
decision of His Britannic Majesty George V, to whom, as amiable compositeur,
the matter had been referred for determination. His Majesty made an award
of nearly $1,000,000 to the claimants, which was promptly paid by Chile.
The settlement of this controversy has happily eliminated from the relations
between the Republic of Chile and the United States the only question which
for two decades had given the two foreign offices any serious concern and
makes possible the unobstructed development of the relations of friendship
which it has been the aim of this Government in every possible way to further
and cultivate.

ARBITRATIONS-PANAMA AND COSTA RICA-COLOMBIA AND HAITI.

In further illustration of the practical and beneficent application
of the principle of arbitration and the underlying broad spirit of conciliation,
I am happy to advert to the part of the United States in facilitating amicable
settlement of disputes which menaced the peace between Panama and Costa
Rica and between Haiti and the Dominican Republic.

Since the date of their independence, Colombia and Costa Rica had been
seeking a solution of a boundary dispute, which came as an heritage from
Colombia to the new Republic of Panama, upon its beginning life as an independent
nation. Although the disputants had submitted this question for decision
to the President of France under the terms of an arbitration treaty, the
exact interpretation of the provisions of the award rendered had been a
matter of serious disagreement between the two countries, both contending
for widely different lines even under the terms of the decision. Subsequently
and since T903 this boundary question bad been the subject of fruitless
diplomatic negotiations between the parties. In January, 1910, at the request
of both Governments the agents representing them met in conference at the
Department of State and subsequently concluded a protocol submitting this
long-pending controversy to the arbitral judgment of the Chief justice
of the United States, who consented to act in this capacity. A boundary
commission, according to the international agreement, has now been appointed,
and it is expected that the arguments will shortly proceed and that this
long-standing dispute will be honorably and satisfactorily terminated.

Again, a few months ago it appeared that the Dominican Republic and
Haiti were about to enter upon hostilities because of complications growing
out of an acrimonious boundary dispute which the efforts of many years
had failed to solve. The Government of the United States, by a friendly
interposition of good offices, succeeded in prevailing upon the parties
to place their reliance upon some form of pacific settlement. Accordingly,
on the friendly suggestion of this Government, the two Governments empowered
commissioners to meet at Washington in conference at the State Department
in order to arrange the terms of submission to arbitration of the boundary
controversy.

CHAMIZAL ARBITRATION NOT SATISFACTORY.

Our arbitration of the Chamizal boundary question with Mexico was unfortunately
abortive, but with the earnest efforts on the part of both Governments
which its importance commands, it is felt that an early practical adjustment
should prove possible.

LATIN AMERICA.
VENEZUELA.

During the past year the Republic of Venezuela celebrated the one hundredth
anniversary of its independence. The United States sent, in honor of this
event, a special embassy to Caracas, where the cordial reception and generous
hospitality shown it were most gratifying as a further proof of the good
relations and friendship existing between that country and the United States.

MEXICO.

The recent political events in Mexico received attention from this Government
because of the exceedingly delicate and difficult situation created along
our southern border and the necessity for taking measures properly to safeguard
American interests. The Government of the United States, in its desire
to secure a proper observance and enforcement of the so-called neutrality
statutes of the Federal Government, issued directions to the appropriate
officers to exercise a diligent and vigilant regard for the requirements
of such rules and laws. Although a condition of actual armed conflict existed,
there was no official recognition of belligerency involving the technical
neutrality obligations of international law.

On the 6th of March last, in the absence of the Secretary of State,
I had a personal interview with Mr. Wilson, the ambassador of the United
States to Mexico, in which he reported to me that the conditions in Mexico
were much more critical than the press dispatches disclosed; that President
Diaz was on a volcano of popular uprising; that the small outbreaks which
had occurred were only symptomatic of the whole condition; that a very
large per cent of the people were in sympathy with the insurrection; that
a general explosion was probable at any time, in which case he feared that
the 40,000 or more American residents in Mexico might be assailed, and
that the very large American investments might be injured or destroyed.

After a conference with the Secretary of War and the Secretary of the
Navy, I thought it wise to assemble an Army division of full strength at
San Antonio, Tex., a brigade of three regiments at Galveston, a brigade
of Infantry in the Los Angeles district of southern California, together
with a squadron of battleships and cruisers and transports at Galveston,
and a small squadron of ships at San Diego. At the same time, through our
representative at the City of Mexico, I expressed to President Diaz the
hope that no apprehensions might result from unfounded conjectures as to
these military maneuvers, and assured him that they had no significance
which should cause concern to his Government.

The mobilization was effected with great promptness, and on the 15th
of March, through the Secretary of War and the Secretary of the Navy, in
a letter addressed to the Chief of Staff, I issued the following instructions:

It seems my duty as Commander in Chief to place troops in sufficient
number where, if Congress shall direct that they enter Mexico to save American
lives and property, an effective movement may be promptly made. Meantime,
the movement of the troops to Texas and elsewhere near the boundary, accompanied
with sincere assurances of the utmost goodwill toward the present Mexican
Government and with larger and more frequent patrols along the border to
prevent insurrectionary expeditions from American soil, will hold up the
hands of the existing Government and will have a healthy moral effect to
prevent attacks upon Americans and their property in any subsequent general
internecine strife. Again, the sudden mobilization of a division of troops
has been a great test of our Army and full of useful instruction, while
the maneuvers that are thus made possible can occupy the troops and their
officers to great advantage.
The assumption by the press that I contemplate intervention on Mexican
soil to protect American lives or property is of course gratuitous, because
I seriously doubt whether I have such authority under any circumstances,
and if I had I would not exercise it without express congressional approval.
Indeed, as you know, I have already declined, without Mexican consent,
to order a troop of Cavalry to protect the breakwater we are constructing
just across the border in Mexico at the mouth of the Colorado River to
save the Imperial Valley, although the insurrectos had scattered the Mexican
troops and were taking our horses and supplies and frightening our workmen
away. My determined purpose, however, is to be in a position so that when
danger to American lives and property in Mexico threatens and the existing
Government is rendered helpless by the insurrection, I can promptly execute
congressional orders to protect them, with effect.

Meantime, I send you this letter, through the Secretary, to call your
attention to some things in connection with the presence of the division
in the Southwest which have doubtless occurred to you, but which I wish
to emphasize.

In the first place, I want to make the mobilization a first-class
training for the Army, and I wish you would give your time and that of
the War College to advising and carrying out maneuvers of a useful character,
and plan to continue to do this during the next three months. By that time
we may expect that either Ambassador Wilson's fears will have been realized
and chaos and its consequences have ensued, or that the present Government
of Mexico will have so readjusted matters as to secure tranquillity-a result
devoutly to be wished. The troops can then be returned to their posts.
I understood from you in Washington that Gen. Aleshire said that you could
probably meet all the additional expense of this whole movement out of
the present appropriations if the troops continue in Texas for three months.
I sincerely hope this is so. I observe from the newspapers that you have
no blank cartridges, but I presume that this is an error, or that it will
be easy to procure those for use as soon as your maneuvers begin.

Second. Texas is a State ordinarily peaceful, but you can not
put 20,000 troops into it without running some risk of a collision between
the people of that State, and especially the -Mexicans who live in Texas
near the border and who sympathize with the insurrectos, and the Federal
soldiers. For that reason I beg you to be as careful as you can to prevent
friction of any kind. We were able in Cuba, with the army of pacification
there of something more than 5,000 troops, to maintain them for a year
without any trouble, and I hope you can do the same thing in Texas. Please
give your attention to this, and advise all the officers in command of
the necessity for very great circumspection in this regard.

Third. One of the great troubles in the concentration of troops
is the danger of disease, and I suppose that you have adopted the most
modern methods for preventing and, if necessary, for stamping out epidemics.
That is so much a part of a campaign that it hardly seems necessary for
me to call attention to it.

Finally, I wish you to examine the question of the patrol of
the border and put as many troops on that work as is practicable, and more
than are now engaged in it, in order to prevent the use of our borderland
for the carrying out of the insurrection. I have given assurances to the
Mexican ambassador on this point.

I sincerely hope that this experience will always be remembered
by the Army and Navy as a useful means of education, and I should be greatly
disappointed if it resulted in any injury or disaster to our forces from
any cause. I have taken a good deal of responsibility in ordering this
mobilization, but I am ready to answer for it if only you and those under
you use the utmost care to avoid the difficulties which I have pointed
out.

You may have a copy of this letter made and left with Gen. Carter and
such other generals in command as you may think wise and necessary to guide
them in their course, but to be regarded as confidential.

I am more than happy to here record the fact that all apprehensions
as to the effect of the presence of so large a military force in Texas
proved groundless; no disturbances occurred; the conduct of the troops
was exemplary and the public reception and treatment of them was all that
could have been desired, and this notwithstanding the presence of a large
number of Mexican refugees in the border territory.
From time to time communications were received from Ambassador Wilson,
who had returned to Mexico, confirming the view that the massing of American
troops in the neighborhood had had good effect. By dispatch of April 3,
1911, the ambassador said:

The continuing gravity of the situation here and the chaos that
would ensue should the constitutional authorities be eventually overthrown,
thus greatly increasing the danger to which American lives and property
are already subject, confirm the wisdom of the President in taking those
military precautions which, making every allowance for the dignity and
the sovereignty of a friendly state, are due to our nationals abroad.
Charged as I am with the responsibility of safeguarding these
lives and property, I am bound to say to the department that our military
dispositions on the frontier have produced an effective impression on the
Mexican mind and may, at any moment, prove to be the only guaranties for
the safety of our nationals and their property. If it should eventuate
that conditions here require more active measures by the President and
Congress, sporadic attacks might be made upon the lives and property of
our nationals, but the ultimate result would be order and adequate protection.

The insurrection continued and resulted In engagements between
the regular Mexican troops and the insurgents, and this along the border,
so that in several instances bullets from the contending forces struck
American citizens engaged in their lawful occupations on American soil.
Proper protests were made against these invasions of American rights
to the Mexican authorities. On April 17, 1911, 1 received the following
telegram from the governor of Arizona:

As a result of to-day's fighting across the international line,
but within gunshot range of the heart of Douglas, five Americans wounded
on this side of the line. Everything points to repetition of these casualties
on to-morrow, and while the Federals seem disposed to keep their agreement
not to fire into Douglas, the position of the insurrectionists is such
that when fighting occurs on the east and southeast of the intrenchments
people living in Douglas are put in danger of their lives. In my judgment
radical measures are needed to protect our innocent people, and if anything
can be done to stop the fighting at Agua Prieta the ,ittiation calls for
such action. It is impossible to safeguard the people of Douglas unless
the town be vacated. Can anything be done to relieve situation, now acute?
After a conference with the Secretary of State, the following
telegram was sent to Governor Sloan, on April IS, 1911 9 11, and made public:
Your dispatch received. Have made urgent demand upon Mexican
Government to issue instructions to prevent firing across border by Mexican
federal troops, and am waiting reply. Meantime I have sent direct warning
to the Mexican and insurgent forces near Douglas. I infer from your dispatch
that both parties attempt to heed the warning, but that in the strain and
exigency of the contest wild bullets still find their way into Douglas.
The situation might justify me in ordering our troops to cross the border
and attempt to stop the fighting, or to fire upon both combatants from
the American side. But if I take this step, I must face the possibility
of resistance and greater bloodshed, and also the danger of having our
motives misconstrued and misrepresented, and of thus inflaming Mexican
popular indignation against many thousand Americans now in Mexico and jeopardizing
their lives and property. The pressure for general intervention under such
conditions it might not be practicable to resist. It is impossible to foresee
or reckon the consequences of such a course, and we must use the greatest
self-restraint to avoid it. Pending my urgent representation to the Mexican
Government, I can not therefore order the troops at Douglas to cross the
border, but I must ask you and the local authorities, in case the same
danger recurs, to direct the people of Douglas to place themselves where
bullets can not reach them and thus avoid casualty. I am loath to endanger
Americans in 'Mexico, where they are necessarily exposed, by taking a radical
step to prevent injury to Americans on our side of the border who can avoid
it by a temporary inconvenience.
I am glad to say that no further invasion of American rights
of any substantial character occurred.
The presence of a large military and naval force available for prompt
action, near the Mexican border, proved to be most fortunate under the
somewhat trying conditions presented by this invasion of American rights
Had no movement theretofore taken place, and because of these events it
had been necessary then to bring about the mobilization, it must have bad
sinister significance. On the other hand, the presence of the troops before
and at the time of the unfortunate killing and wounding of American citizens
at Douglas, made clear that the restraint exercised by our Government in
regard to this Occurrence was not due to lack of force or power to deal
with it promptly and aggressively, but was due to a real desire to use
every means possible to avoid direct intervention in the affairs of our
neighbor whose friendship we valued and were most anxious to retain.

The policy and action of this Government were based upon an earnest
friendliness for the Mexican people as a whole, and it is a matter of gratification
to note that this attitude of strict impartiality as to all factions in
Mexico and of sincere friendship for the neighboring nation, without regard
for party allegiance, has been generally recognized and has resulted in
an even closer and more sympathetic understanding between the two Republics
and a warmer regard one for the other. Action to suppress violence and
restore tranquillity throughout the Mexican Republic was of peculiar interest
to this Government, in that it concerned the safeguarding of American life
and property in that country. The Government of the United States had occasion
to accord permission for the passage of a body of Mexican rurales through
Douglas, Arizona, to Tia Juana, Mexico, for the suppression of general
lawlessness which bad for some time existed in the region of northern Lower
California. On May 25, 1911, President Diaz resigned, Senor de la Barra
was chosen provisional President. Elections for President and Vice President
were thereafter held throughout the Republic, and Senor Francisco 1. Madero
was formally declared elected on October 15 to the chief magistracy. On
November 6 President Madero entered upon the duties of his office.

Since the inauguration of President Madero a plot has been unearthed
against the present Government, to begin a new insurrection. Pursuing the
same consistent policy which this administration has adopted from the beginning,
it directed an investigation into the conspiracy charged, and this investigation
has resulted in the indictment of Gen. Bernardo Reyes and others and the
seizure of a number of officers and men and horses and accoutrements assembled
upon the soil of Texas for the purpose of invading Mexico. Similar proceedings
had been taken during the insurrection against the Diaz Government resulting
in the indictments and prosecution of persons found to be engaged in violating
the neutrality laws of the United States in aid of that uprising.

The record of this Government in respect of the recognition of constituted
authority in Mexico therefore is clear.

CENTRAL AMERICA-HONDURAS AND NICARAGUA TREATIES PROPOSED.

As to the situation in Central America, I have taken occasion in the
past to emphasize most strongly the importance that should be attributed
to the consummation of the conventions between the Republics of Nicaragua
and of Honduras and this country, and I again earnestly recommend that
the necessary advice and consent of the Senate be accorded to these treaties,
which will make it possible for these Central American Republics to enter
upon an era of genuine economic national development. The Government of
Nicaragua which has already taken favorable action on the convention, has
found it necessary, pending the exchange of final ratifications, to enter
into negotiations with American bankers for the purpose of securing a temporary
loan to relieve the present financial tension. III connection with this
temporary loan and in the hope of consummating, through the ultimate operation
of the convention, a complete and lasting economic regeneration, the Government
of Nicaragua has also decided to engage an American citizen as collector
general of customs. The claims commission on which the services of two
American citizens have been sought, and the work of the American financial
adviser should accomplish a lasting good of inestimable benefit to the
prosperity, commerce, and peace of the Republic. In considering the ratification
of the conventions with Nicaragua and Honduras, there rests with the United
States the heavy responsibility of the fact that their rejection here might
destroy the progress made and consign the Republics concerned to still
deeper submergence in bankruptcy, revolution, and national jeopardy.

PANAMA.

Our relations with the Republic of Panama, peculiarly important, due
to mutual obligations and the vast interests created by the canal, have
continued in the usual friendly manner, and we have been glad to make appropriate
expression of our attitude of sympathetic interest in the endeavors of
our neighbor in undertaking the development of the rich resources of the
country. With reference to the internal political affairs of the Republic,
our obvious concern is in the maintenance of public peace and constitutional
order, and the fostering of the general interests created by the actual
relations of the two countries, without the manifestation of any preference
for the success of either of the political parties.

THE PAN AMERICAN UNION.

The Pan American Union, formerly known as the Bureau of American Republics,
maintained by the joint contributions of all the American nations, has
during the past year enlarged its practical work as an international organization,
and continues to prove its usefillness as an agency for the mutual development
of commerce, better acquaintance, and closer intercourse between the United
States and her sister American republics.

THE FAR EAST.
THE CHINESE LOANS.

The past year has been marked in our relations with China by the conclusion
of two important international loans, one for the construction of the Hukuang
railways, the other for carrying out of the currency reform to which China
was pledged by treaties with the United States, Great Britain, and Japan,
of which mention was made in my last annual message.

It will be remembered that early in 1909 an agreement was consummated
among British, French, and German financial groups whereby they proposed
to lend the Chinese Government funds for the construction of railways in
the Provinces of Hunan and Hupeh, reserving for their nationals the privilege
of engineering the construction of the lines and of furnishing the materials
required for the work. After negotiations with the Governments and groups
concerned an agreement was reached whereby American, British, French, and
German nationals should participate upon equal terms in this important
and useful undertaking. Thereupon the financial groups, supported by their
respective Governments, began negotiations with the Chinese Government
which terminated in a loan to China Of $30,000,000, with the privilege
of increasing the amount to $50,000,000. The cooperative construction of
these trunk lines should be of immense advantage, materially and otherwise,
to China and should greatly facilitate the development of the bountiful
resources of the Empire. On the other hand, a large portion of these funds
is to be expended for materials, American products having equal preference
with those of the other three lending nations, and as the contract provides
for branches and extensions subsequently to be built on the same terms
the opportunities for American materials will reach considerable proportions.

Knowing the interest of the United States in the reform of Chinese currency,
the Chinese Government, in the autumn of 1910 sought the assistance of
the American Government to procure funds with which to accomplish that
all-important reform. In the course of the subsequent negotiations there
was combined with the proposed currency loan one for certain industrial
developments in Manchuria, the two loans aggregating the sum Of $50,000,000.
While this was originally to be solely an American enterprise, the American
Government, consistently with its desire to secure a sympathetic and practical
cooperation of the great powers toward maintaining the principle of equality
of opportunity and the administrative integrity of China, urged the Chinese
Government to admit to participation in the currency loan the associates
of the American group in the Hukuang loan. While of immense importance
in itself, the reform contemplated in making this loan is but preliminary
to other and more comprehensive fiscal reforms which will be of incalculable
benefit to China and foreign interests alike, since they will strengthen
the Chinese Empire and promote the rapid development of international trade.

NEUTRAL FINANCIAL ADVISER.

When these negotiations were begun, it was understood that a financial
adviser was to be employed by China in connection with the reform, and
in order that absolute equality in all respects among the lending nations
might be scrupulously observed, the American Government proposed the nomination
of a neutral adviser, which was agreed to by China and the other Governments
concerned. On September 28, 1911, Dr. Vissering, president of the Dutch
Java Bank and a financier of wide experience in the Orient, was recommended
to the Chinese Government for the post of monetary adviser.

Especially important at the present, when the ancient Chinese Empire
is shaken by civil war incidental to its awakening to the many influences
and activities of modernization, are the cooperative policy of good understanding
which has been fostered by the international projects referred to above
and the general sympathy of view among all the Powers interested in the
Far East. While safeguarding the interests of our nationals, this Government
is using its best efforts in continuance of its traditional policy of sympathy
and friendship toward the Chinese Empire and its people, with the confident
hope for their economic and administrative development, and with the constant
disposition to contribute to their welfare in all proper ways consistent
with an attitude of strict impartiality as between contending factions.

For the first time in the history of the two countries, a Chinese cruiser,
the Haichi, under the command of Admiral Ching, recently visited New York,
where the officers and men were given a cordial welcome.

NEW JAPANESE TREATY.

The treaty of commerce and navigation between the United States and
Japan, signed in 1894, would by a strict interpretation of its provisions
have terminated on July 17, 1912. Japan's general treaties with the other
powers, however, terminated in 1911, and the Japanese Government expressed
an earnest desire to conduct the negotiations for a new treaty with the
United States simultaneously with its negotiations with the other powers.
There were a number of important questions involved in the treaty, including
the immigration of laborers, revision of the customs tariff, and the right
of Americans to hold real estate in Japan. The United States consented
to waive all technicalities and to enter at once upon negotiations for
a new treaty on the understanding that there should be a continuance throughout
the, life of the treaty of the same effective measures for the restriction
of immigration of laborers to American territory which had been in operation
with entire satisfaction to both Governments since 1908. The Japanese Government
accepted this basis of negotiation, and a new treaty was quickly concluded,
resulting in a highly satisfactory settlement of the other questions referred
to.

A satisfactory adjustment has also been effected of the questions growing
out of the annexation of Korea by Japan.

The recent visit of Admiral Count Togo to the United States as the Nation's
guest afforded a welcome opportunity to demonstrate the friendly feeling
so happily existing between the two countries.

SIAM.

There has been a change of sovereigns in Siam and the American minister
at Bangkok was accredited in a special capacity to represent the United
States at the coronation ceremony of the new King.

EUROPE AND THE NEAR EAST.

In Europe and the Near East, during the past twelve-month, there has
been at times considerable political unrest. The Moroccan question, which
for some months was the cause of great anxiety, happily appears to have
reached a stage at which it need no longer be regarded with concern. The
Ottoman Empire was occupied for a period by strife in Albania and is now
at war with Italy. In Greece and the Balkan countries the disquieting potentialities
of this situation have been more or less felt. Persia has been the scene
of a long internal struggle. These conditions have been the cause of uneasiness
in European diplomacy, but thus far without direct political concern to
the United States.

In the war which unhappily exists between Italy and Turkey this Government
has no direct political interest, and I took occasion at the suitable time
to issue a proclamation of neutrality in that conflict. At the same time
all necessary steps have been taken to safeguard the personal interests
of American citizens and organizations in so far as affected by the war.

COMMERCE WITH THE NEAR EAST.

In spite of the attendant economic uncertainties and detriments to commerce,
the United States has gained markedly in its commercial standing with certain
of the nations of the Near East. Turkey, especially, is beginning to come
into closer relations with the United States through the new interest of
American manufacturers and exporters in the possibilities of those regions,
and it is hoped that foundations are being laid for a large and mutually
beneficial exchange of commodities between the two countries. This new
interest of Turkey in American goods is indicated by the fact that a party
of prominent merchants from a large city in Turkey recently visited the
United States to study conditions of manufacture and export here, and to
get into personal touch with American merchants, with a view to cooperating
more intelligently in opening up the markets of Turkey and the adjacent
countries to our manufactures. Another indication of this new interest
of America in the commerce of the Near East is the recent visit of a large
party of American merchants and manufacturers to central and eastern Europe,
where they were entertained by prominent officials and organizations of
the large cities, and new bonds of friendship and understanding were established
which can not but lead to closer and greater commercial interchange.

CORONATION OF KING GEORGE V.

The 22d of June of the present year marked the coronation of His Britannic
Majesty King George V. In honor of this auspicious occasion I sent a special
embassy to London. The courteous and cordial welcome extended to this Government's
representatives by His Majesty and the people of Great Britain has further
emphasized the strong bonds of friendship happily existing between the
two nations.

SETTLEMENT OF LONG-STANDING DIFFERENCES WITH GREAT BRITAIN.

As the result of a determined effort on the part of both Great Britain
and the United States to settle all of their outstanding differences a
number of treaties have been entered into between the two countries in
recent years, by which nearly all of the unsettled questions between them
of any importance have either been adjusted by agreement or arrangements
made for their settlement by arbitration. A number of the unsettled questions
referred to consist of pecuniary claims presented by each country against
the other, and in order that as many of these claims as possible should
be settled by arbitration a special agreement for that purpose was entered
into between the two Governments on the 18th day of August, 1910, in accordance
with Article 11 of the general arbitration treaty with Great Britain of
April 4, 19o8. Pursuant to the provisions of this special agreement a schedule
of claims has already been agreed upon, and the special agreement, together
with this schedule, received the approval of the Senate when submitted
to it for that purpose at the last session of Congress. Negotiations between
the two Governments for the preparation of an additional schedule of claims
are already well advanced, and it is my intention to submit such schedule
as soon as it is agreed upon to the Senate for its approval, in order that
the arbitration proceedings may be undertaken at an early date. In this
connection the attention of Congress is particularly called to the necessity
for an appropriation
to cover the expense incurred in submitting these claims to arbitration.

PRESENTATION TO GERMANY OF REPLICA OF VON STEUBEN STATUE.

In pursuance of the act of Congress, approved June 23, 1910, the Secretary
of State and the joint Committee on the Library entered into a contract
with the sculptor, Albert Jaegers, for the execution of a bronze replica
of the statue of Gen. von Steuben erected in Washington, for presentation
to His Majesty the German Emperor and the German nation in recognition
of the gift of the statue of Frederick the Great made by the Emperor to
the people of the United States.

The presentation was made on September 2 last by representatives whom
I commissioned as the special mission of this Government for the purpose.

The German Emperor has conveyed to me by telegraph, on his own behalf
and that of the German people, an expression of appreciative thanks for
this action of Congress.

RUSSIA.

By direction of the State Department, our ambassador to Russia has recently
been having a series of conferences with the minister of foreign affairs
of Russia, with a view to securing a clearer understanding and construction
of the treaty of 1832 between Russia and the United States and the modification
of any existing Russian regulations which may be found to interfere in
any way with the full recognition of the rights of American citizens under
this treaty. I believe that the Government of Russia is addressing itself
seriously to the need of changing the present practice under the treaty
and that sufficient progress has been made to warrant the continuance of
these conferences in the hope that there may soon be removed any justification
of the complaints of treaty violation now prevalent in this country.

I expect that immediately after the Christmas recess I shall be able
to make a further communication to Congress on this subject.

LIBERIA.

Negotiations for the amelioration of conditions found to exist in Liberia
by the American commission, undertaken through the Department of State,
have been concluded and it is only necessary for certain formalities to
be arranged in securing the loan which it is hoped will place that republic
on a practical financial and economic footing.

RECOGNITION OF PORTUGUESE REPUBLIC.

The National Constituent Assembly, regularly elected by the vote of
the Portuguese people, having on June 19 last unanimously proclaimed a
republican form of government, the official recognition of the Government
of the United States was given to the new Republic in the afternoon of
the same day.

SPITZBERGEN ISLANDS.

Negotiations for the betterment of conditions existing in the Spitzbergen
Islands and the adjustment of conflicting claims of American citizens and
Norwegian subjects to lands in that archipelago are still in progress.

INTERNATIONAL CONVENTIONS AND CONFERENCES.
INTERNATIONAL PRIZE COURT.

The supplementary protocol to The he Hague convention for the establishment
of an international prize court, mentioned in my last annual message, embodying
stipulations providing for an alternative procedure which would remove
the constitutional objection to that part of The Hague convention which
provides that there may be an appeal to the proposed court from the decisions
of national courts, has received the signature of the governments parties
to the original convention and has been ratified by the Government of the
United States, together with the prize court convention.

The deposit of the ratifications with the Government of the Netherlands
awaits action by the powers on the declaration, signed at London on February
26, 1909 of the rules of international law to be recognized within the
meaning of article 7 of The Hague convention for the establishment of an
International Prize Court.

FUR-SEAL TREATY.

The fur-seal controversy, which for nearly twenty-five years has been
the source of serious friction between the United States and the powers
bordering upon the north Pacific Ocean, whose subjects have been permitted
to engage in pelagic sealing against the fur-seal herds having their breeding
grounds within the jurisdiction of the United States, has at last been
satisfactorily adjusted by the conclusion of the north Pacific sealing
convention entered into between the United States, Great Britain, Japan,
and Russia on the 7th of July last. This convention is a conservation measure
of very great importance, and if it is carried out in the spirit of reciprocal
concession and advantage upon which it is based, there is every reason
to believe that not only will it result in preserving the furseal herds
of the north Pacific Ocean and restoring them to their former value for
the purposes of commerce, but also that it will afford a permanently satisfactory
settlement of a question the only other solution of which seemed to be
the total destruction of the fur seals. In another aspect, also, this convention
is of importance in that it furnishes an illustration of the feasibility
of securing a general international game law for the protection of other
mammals of the sea, the preservation of which is of importance to all the
nations of the world.

LEGISLATION NECESSARY.

The attention of Congress is especially called to the necessity for
legislation on the part of the United States for the purpose of fulfilling
the obligations assumed under this convention, to which the Senate gave
its advice and consent on the 24th day of July last.

PROTECTION OF INDUSTRIAL PROPERTY UNION.

The conference of the International Union for the Protection of Industrial
Property, which, under the authority of Congress, convened at Washington
on May 16, 1911, closed its labors on June 2, 1911, by the signature of
three acts, as follows:

(I) A convention revising the Paris convention of March 20, 1883, for
the protection of industrial property, as modified by the additional act
signed at Brussels on December 14, 1900;

(2) An arrangement to replace the arrangement signed at Madrid on April
14, 1891 for the international registration of trade-marks, and the additional
act with regard thereto signed at Brussels on December 14, 1900; and

(3) An arrangement to replace the arrangement signed at Madrid on April
14, 18gi, relating to the repression of false indication of production
of merchandise.

The United States is a signatory of the first convention only, and this
will be promptly submitted to the Senate.

INTERNATIONAL OPIUM COMMISSION.

In a special message transmitted to the Congress on the 11th of January,
19ii, in which I concurred in the recommendations made by the Secretary
of State in regard to certain needful legislation for the control of our
interstate and foreign traffic in opium and other menacing drugs, I quoted
from my annual message of December 7, 1909, in which I announced that the
results of the International Opium Commission held at Shanghai in February,
1909, at the invitation of the United States, had been laid before this
Government; that the report of that commission showed that China was making
remarkable progress and admirable efforts toward the eradication of the
opium evil; that the interested governments had not permitted their commercial
interests to prevent their cooperation in this reform; and, as a result
of collateral investigations of the opium question in this country, I recommended
that the manufacture, sale, and use of opium in the United States should
be more rigorously controlled by legislation

Prior to that time and in continuation of the policy of this Government
to secure the cooperation of the interested nations, the United States
proposed an international opium conference with full powers for the purpose
of clothing with the force of international law the resolutions adopted
by the above-mentioned commission, together with their essential corollaries.
The other powers concerned cordially responded to the proposal of this
Government, and, I am glad to be able to announce, representatives of all
the powers assembled in conference at The Hague on the first of this month.

Since the passage of the opium-exclusion act, more than twenty States
have been animated to modify their pharmacy laws and bring them in accord
with the spirit of that act, thus stamping out, to a measure, the intrastate
traffic in opium and other habit-forming drugs. But, although I have urged
on the Congress the passage of certain measures for Federal control of
the interstate and foreign traffic in these drugs, no action has yet been
taken. In view of the fact that there is now sitting at The Hague so important
a conference, which has under review the municipal laws of the different
nations for the mitigation of their opium and other allied evils, a conference
which will certainly deal with the international aspects of these evils,
it seems to me most essential that the Congress should take immediate action
on the anti-narcotic legislation to which I have already called attention
by a special message.

BUENOS AIRES CONVENTIONS.

The four important conventions signed at the Fourth Pan American Conference
at Buenos Aires, providing for the regulation of trademarks, patents, and
copyrights, and for the arbitration of pecuniary claims, have, with the
advice and consent of the Senate, been ratified on the part of the United
States and the ratifications have been deposited with the Government of
the Argentine Republic in accordance with the requirements of the conventions.
I am not advised that similiar action has been taken by any other of the
signatory governments.

INTERNATIONAL ARRANGEMENT TO SUPPRESS OBSCENE PUBLICATIONS.

One of the notable advances in international morality accomplished in
recent years was an arrangement entered into on April 13th of the present
year between the United States and other powers for the repression of the
circulation of obscene publications.

FOREIGN TRADE RELATIONS OF TYTE UNITED STATES.

In my last annual message I referred to the tariff negotiations of the
Department of State with foreign countries in connection with the application,
by a series of proclamations, of the minimum tariff of the United States
to importations from the several countries, and I stated that, in its general
operation, section 2 of the new tariff law had proved a guaranty of continued
commercial peace, although there were, unfortunately, instances where foreign
governments dealt arbitrarily with American interests within their jurisdiction
in a manner injurious and inequitable. During the past year some instances
of discriminatory treatment have been removed, but I regret to say that
there remain a few cases of differential treatment adverse to the commerce
of the United States. While none of these instances now appears to amount
to undue discrimination in the sense of section 2 Of the tariff law of
August 5, 1909, they are all exceptions to that complete degree of equality
of tariff treatment that the Department of State has consistently sought
to obtain for American commerce abroad.

While the double tariff feature of the tariff law of 1909 has been amply
justified by the results achieved in removing former and preventing new,
undue discriminations against American commerce it is believed that the
time has come for the amendment of this feature of the law in such way
as to provide a graduated means of meeting varying degrees of discriminatory
treatment of American commerce in foreign countries as well as to protect
the financial interests abroad of American citizens against arbitrary and
injurious treatment on the part of foreign governments through either legislative
or administrative measures.

It would seem desirable that the maximum tariff of the United States
should embrace within its purview the free list, which is not the case
at the present time, in order that it might have reasonable significance
to the governments of those countries from which the importations into
the United States are confined virtually to articles on the free list.

RECORD OF HIGHEST AMOUNT OF FOREIGN TRADE.

The fiscal year ended June 30, 1911, shows great progress in the development
of American trade. It was noteworthy as marking the highest record of exports
of American products to foreign countries, the valuation being in excess
of $2,000,000,000. These exports showed a gain over the preceding year
of more than $300,000,000.

FACILITIES FOR FOREIGN TRADE FURNISHED BY JOINT ACTION OF DEPARTMENT
OF STATE AND OF COMMERCE AND LABOR.

There is widespread appreciation expressed by the business interests
of the country as regards the practical value of the facilities now offered
by the Department of State and the Department of Commerce and Labor for
the furtherance of American commerce. Conferences with their officers at
Washington who have an expert knowledge of trade conditions in foreign
countries and with consular officers and commercial agents of the Department
of Commerce and Labor who, while on leave of absence, visit the principal
industrial centers of the United States, have been found of great value.
These trade conferences are regarded as a particularly promising method
of governmental aid in foreign trade promotion. The Department of Commerce
and Labor has arranged to give publicity to the expected arrival and the
itinerary of consular officers and commercial agents while on leave in
the United States, in order that trade organizations may arrange for conferences
with them.

As I have indicated, it is increasingly clear that to obtain and maintain
that equity and substantial equality of treatment essential to the flourishing
foreign trade, which becomes year by year more important to the industrial
and commercial welfare of the United States, we should have a flexibility
of tariff sufficient for the give and take of negotiation by the Department
of State on behalf of our commerce and industry.

CRYING NEED FOR AMERICAN MERCHANT MARINE.

I need hardly reiterate the conviction that there should speedily be
built up an American merchant marine. This is necessary to assure favorable
transportation facilities to our great ocean-borne commerce as well as
to supplement the Navy with an adequate reserve of ships and men It would
have the economic advantage of keeping at home part of the vast sums now
paid foreign shipping for carrying American goods. All the great commercial
nations pay heavy subsidies to their merchant marine so that it is obvious
that without some wise aid from the Congress the United States must lag
behind in the matter of merchant marine in its present anomalous position.

EXTENSION OF AMERICAN BANKING TO FOREIGN COUNTRIES.

Legislation to facilitate the extension of American banks to foreign
countries is another matter in which our foreign trade needs assistance.

CHAMBERS OF FOREIGN COMMERCE SUGGESTED.

The interests of our foreign commerce are nonpartisan, and as a factor
in prosperity are as broad as the land. In the dissemination of useful
information and in the coordination of effort certain unofficial associations
have done good work toward the promotion of foreign commerce. It is cause
for regret, however, that the great number of such associations and the
comparative lack of cooperation between them fails to secure an efficiency
commensurate with the public interest. Through the agency of the Department
of Commerce and Labor, and in some cases directly, the Department of State
transmits to reputable business interests information of commercial opportunities,
supplementing the regular published consular reports. Some central organization
in touch with associations and chambers of commerce throughout the country
and able to keep purely American interests in closer touch with different
phases of commercial affairs would, I believe, be of great value. Such
organization might be managed by a committee composed of a small number
of those now actively carrying on the work of some of the larger associations,
and there might be added to the committee, as members ex officio, one or
two officials of the Department of State and one or two officials from
the Department of Commerce and Labor and representatives of the appropriate
committees of Congress. The authority and success of such an organization
would evidently be enhanced if the Congress should see fit to prescribe
its scope and organization through legislation which would give to it some
such official standing as that, for example, of the National Red Cross.

With these factors and the continuance of the foreign-service establishment
(departmental, diplomatic, and consular) upon the high plane where it has
been placed by the recent reorganization this Government would be abreast
of the times in fostering the interests of its foreign trade, and the rest
must be left to the energy and enterprise of our business men.

IMPROVEMENT OF THE FOREIGN SERVICE.

The entire foreign-service organization is being improved and developed
with especial regard to the requirements of the commercial interests of
the country. The rapid growth of our foreign trade makes it of the utmost
importance that governmental agencies through which that trade is to be
aided and protected should possess a high degree of efficiency. Not only
should the foreign representatives be maintained upon a generous scale
in so far as salaries and establishments are concerned, but the selection
and advancement of officers should be definitely and permanently regulated
by law so that the service shall not fail to attract men of high character
and ability. The experience of the past few years with a partial application
of civil-service rules to the Diplomatic and Consular Service leaves no
doubt in my mind of the wisdom of a wider and more permanent extension
of those principles to both branches of the foreign service. The men selected
for appointment by means of the existing executive regulations have been
of a far higher average of intelligence and ability than the men appointed
before the regulations were promulgated. Moreover, the feeling that under
the existing rules there is reasonable hope for permanence of tenure during
good behavior and for promotion for meritorious service has served to bring
about a zealous activity in the interests of the country, which never before
existed or could exist. It is my earnest conviction that the enactment
into law of the general principles of the existing regulations can not
fail to effect further improvement in both branches of the foreign service
by providing greater inducement for young men of character and ability
to seek a career abroad in the service of the Government, and an incentive
to those already in the service to put forth greater efforts to attain
the high standards which the successful conduct of our international relations
and commerce requires.

I therefore again commend to the favorable action of the Congress the
enactment of a law applying to the diplomatic and consular service the
principles embodied in section 1753 of the Revised Statutes of the United
States, in the civil-service act of January 16, 1883, and the Executive
orders of June 27, 1906, and of November 26, 1909. In its consideration
of this important subject I desire to recall to the attention of the Congress
the very favorable report made on the Lowden bill for the improvement of
the foreign service by the Foreign Affairs Committee of the House of Representatives.
Available statistics show the strictness with which the merit system has
been applied to the foreign service during recent years and the absolute
nonpartisan selection of consuls and diplomatic-service secretaries who,
indeed, far from being selected with any view to political consideration,
have actually been chosen to a disproportionate extent from States which
would have been unrepresented in the foreign service under the system which
it is to be hoped is now permanently obsolete. Some legislation for the
perpetuation of the present system of examinations and promotions upon
merit and efficiency would be of greatest value to our commerical and international
interests.

PART III.

THE WHITE HOUSE, December 20, 1911.
To the Senate and House of Representatives:
In my annual message to Congress, December, 1909, I stated that under
section 2 of the act of August 5, 1909, I had appointed a Tariff Board
of three members to cooperate with the State Department in the administration
of the maximum and minimum clause of that act, to make a glossary or encyclopedia
of the existing tariff so as to render its terms intelligible to the ordinary
reader, and then to investigate industrial conditions and costs of production
at home and abroad with a view to determining to what extent existing tariff
rates actually exemplify the protective principle, viz., that duties should
be made adequate, and only adequate, to equalize the difference in cost
of production at home and abroad.

I further stated that I believed these investigations would be of great
value as a basis for accurate legislation, and that I should from time
to time recommend to Congress the revision of certain schedules in accordance
with the findings of the Board.

In the last session of the Sixty-first Congress a bill creating a permanent
Tariff Board of five members, of whom not more than three should be of
the same political party, passed each House, but failed of enactment because
of slight differences on which agreement was not reached before adjournment.
An appropriation act provided that the permanent Tariff Board, if created
by statute, should report to Congress on Schedule K in December, 1911.

Therefore, to carry out so far as lay within my power the purposes of
this bill for a permanent Tariff Board, I appointed in March, 19li, a board
of five, adding two members of such party affiliation as would have fulfilled
the statutory requirement, and directed them to make a report to me on
Schedule K of the tariff act in December of this year.

In my message of August 17, 1911, accompanying the veto of the wool
bill, I said that, in my judgment, Schedule K should be revised and the
rates reduced. My veto was based on the ground that, since the Tariff Board
would make, in December, a detailed report on wool and wool manufactures,
with special reference to the relation of the existing rates of duties
to relative costs here and abroad, public policy and a fair regard to the
interests of the producers and the manufacturers on the one hand and of
the consumers on the other demanded that legislation should not be hastily
enacted in the absence of such information; that I was not myself possessed
at that time of adequate knowledge of the facts to determine whether or
not the proposed act was in accord with my pledge to support a fair and
reasonable protective policy; that such legislation might prove only temporary
and inflict upon a great industry the evils of continued uncertainty.

I now herewith submit a report of the Tariff Board on Schedule K. The
board is unanimous in its findings. On the basis of these findings I now
recommend that the Congress proceed to a consideration of this schedule
with a view to its revision and a general reduction of its rates.

The report shows that the present method of assessing the duty on raw
wool-this is, by a specific rate on the grease pound (i. e., unscoured)
-operates to exclude wools of high shrinkage in scouring but fine quality
from the American market and thereby lessens the range of wools available
to the domestic manufacturer; that the duty on scoured wool Of 33 cents
per pound is prohibitory and operates to exclude the importation of clean,
low-priced foreign wools of inferior grades, which are nevertheless valuable
material for manufacturing, and which can not be imported in the grease
because of their heavy shrinkage. Such wools, if imported, might be used
to displace the cheap substitutes now in use.

To make the preceding paragraph a little plainer, take the instance
of a hundred pounds of first-class wool imported under the present duty,
which is 11 11 cents a pound. That would make the duty on the hundred pounds
$11. The merchantable part of the wool thus imported is the weight of the
wool of this hundred pounds after scouring. If the wool shrinks 80 per
cent, as some wools do, then the duty in such a case would amount to $11
$11 on 20 pounds of scoured wool. This, of course, would be prohibitory.
If the wool shrinks only 50 per cent, it would be $11 on 50 pounds of wool,
and this is near to the average of the great bulk of wools that are imported
from Australia, which is the principal source of our imported wool.

These discriminations could be overcome by assessing a duty in ad valorem
terms, but this method is open to the objection, first, that it increases
administrative difficulties and tends to decrease revenue through undervaluation;
and, second, that as prices advance, the ad valorem rate increases the
duty per pound at the time when the consumer most needs relief and the
producer can best stand competition; while if prices decline the duty is
decreased at the time when the consumer is least burdened by the price
and the producer most needs protection.

Another method of meeting the difficulty of taxing the grease pound
is to assess a specific duty on grease wool in terms of its scoured content.
This obviates the chief evil of the present system, namely, the discrimination
due to different shrinkages, and thereby tends greatly to equalize the
duty. The board reports that this method is feasible in practice and could
be administered without great expense. The scoured content of the wool
is the basis on which users of wool make their calculations, and a duty
of this kind would fit the usages of the trade. One effect of this method
of assessment would be that , regardless of the rate of duty, there would
be an increase in the supply and variety of wool by making available to
the American market wools of both low and fine quality now excluded.

The report shows in detail the difficulties involved in attempting to
state in categorical terms the cost of wool production and the great differences
in cost as between different regions and different types of wool. It is
found, however, that, taking all varieties in account, the average cost
of production for the whole American clip is higher than the cost in the
chief competing country by an amount somewhat less than the present duty.

The report shows that the duties on noils, wool wastes, and shoddy,
which are adjusted to the rate Of 33 cents on scoured wool are prohibitory
in the same measure that the duty on scoured wool is prohibitory. In general,
they are assessed at rates as high as, or higher than, the duties paid
on the clean content of wools actually imported. They should be reduced
and so adjusted to the rate on wool as to bear their proper proportion
to the real rate levied on the actual wool imports.

The duties on many classes of wool manufacture are prohibitory and greatly
in excess of the difference in cost of production here and abroad.

This is true of tops, of yarns (with the exception of worsted yarns
of a very high grade), and of low and medium grade cloth of heavy weight.

On tops up to 52 cents a pound in value, and on yarns of 65 cents in
value, the rate is 100 per cent with correspondingly higher rates for lower
values. On cheap and medium grade cloths, the existing rates frequently
run to 150 per cent and on some cheap goods to over 200 per cent. This
is largely due to that part of the duty which is levied ostensibly to compensate
the manufacturer for the enhanced cost of his raw material due to the duty
on wool. As a matter of fact, this compensatory duty, for numerous classes
of goods, is much in excess of the amount needed for strict compensation.

On the other hand, the findings show that the duties which run to such
high ad valorem equivalents are prohibitory, since the goods are not imported,
but that the prices of domestic fabrics are not raised by the full amount
of duty. On a set of 1-yard samples of 16 English fabrics, which are completely
excluded by the present tariff rates, it was found that the total foreign
value was $41.84; the duties which would have been assessed had these fabrics
been imported, $76.90; the foreign value plus the amount of the duty, $118.74;
or a nominal duty of 183 per cent. In fact, however, practically identical
fabrics of domestic make sold at the same time at $69.75, showing an enhanced
price over the foreign market value of but 67 per cent.

Although these duties do not increase prices of domestic goods by anything
like their full amount, it is none the less true that such prohibitive
duties eliminate the possibility of foreign competition, even in time of
scarcity; that they form a temptation to monopoly and conspiracies to control
domestic prices; that they are much in excess of the difference in cost
of production here and abroad, and that they should be reduced to a point
which accords with this principle.

The findings of the board show that in this industry the actual manufacturing
cost, aside from the question of the price of materials, is much higher
in this country than it is abroad; that in the making of yarn and cloth
the domestic woolen or worsted manufacturer has in general no advantage
in the form of superior machinery or more efficient labor to offset the
higher wages paid in this country The findings show that the cost of turning
wool into yarn in this country is about double that in the leading competing
country, and that the cost of turning yarn into cloth is somewhat more
than double. Under the protective policy a great industry, involving the
welfare of hundreds of thousands of people, has been established despite
these handicaps.

In recommending revision and reduction, I therefore urge that action
be taken with these facts in mind, to the end that an important and established
industry may not be jeopardized.

The Tariff Board reports that no equitable method has been found to,
levy purely specific duties on woolen and worsted fabrics and that, excepting
for a compensatory duty, the rate must be ad valorem on such manufactures.
It is important to realize, however, that no flat ad valorem rate on such
fabrics can be made to work fairly and effectively. Any single rate which
is high enough to equalize the difference in manufacturing cost at home
and abroad on highly finished goods involving such labor would be prohibitory
on cheaper goods, in which the labor cost is a smaller proportion of the
total value. Conversely, a rate only adequate to equalize this difference
on cheaper goods would remove protection from the fine-goods manufacture,
the increase in which has been one of the striking features of the trade's
development in recent years. I therefore recommend that in any revision
the importance of a graduated scale of ad valorem duties on cloths be carefully
considered and applied.

I venture to say that no legislative -body has ever had presented to
it a more complete and exhaustive report than this on so difficult and
complicated a subject as the relative costs of wool and woolens the world
over. It is a monument to the thoroughness, industry, impartiality, and
accuracy of the men engaged in its making. They were chosen from both political
parties but have allowed no partisan spirit to prompt or control their
inquiries. They are unanimous in their findings. I feel sure that after
the report has been printed and studied the value of such a compendium
of exact knowledge in respect to this schedule of the tariff will convince
all of the wisdom of making such a board permanent in order that it may
treat each schedule of the tariff as it has treated this, and then keep
its bureau of information up to date with current changes in the economic
world.

It is no part of the function of the Tariff Board to propose rates of
duty. Their function is merely to present findings of fact on which rates
of duty may be fairly determined in the light of adequate knowledge in
accord with the economic policy to be followed. This is what the present
report does.

The findings of fact by the board show ample reason for the revision
downward of Schedule K, in accord with the protective principle, and present
the data as to relative costs and prices from which may be determined what
rates will fairly equalize the difference in production costs. I recommend
that such revision be proceeded with at once.

PART IV.
[On the financial condition of the treasury, needed banking
and currency reform, and departmental questions.]

THE WHITE HOUSE, December 21, 1911.
To the Senate and House of Representatives:
The financial condition of the Government, as shown at the close of
the last fiscal year, June 30, 1911, was very satisfactory. The ordinary
receipts into the general fund, excluding postal revenues, amounted to
$701,372,374.99, and the disbursements from the general fund for current
expenses and capital outlays, excluding postal and Panama Canal disbursements,
including the interest on the public debt, amounted to $654,137,907-89,
leaving a surplus Of $47,234,377.10.

The postal revenue receipts amounted to $237,879,823,60, while the payments
made for the postal service from the postal revenues amounted to $237,660,705.48,
which left a surplus of postal receipts over disbursements Of $219,118.12,
the first time in 27 years in which a surplus occurred.

The interest-bearing debt of the United States June 30, 1911, amounted
to $915,353,igo. The debt on which interest had ceased amounted to $1,879,830.26,
and the debt bearing no interest, including greenbacks, national bank notes
to be redeemed, and fractional currency, amounted to $386,751,917-43, or
a total of interest and noninterest bearing debt amounting to $1,303,984,937.69.

The actual disbursements, exclusive of those for the Panama Canal and
for the postal service for the year ending June 30, 1911, were $654,137,997.89.
The actual disbursements for the year ending June 30, 1910, exclusive of
the Panama Canal and the postal service disbursements, were $659,705,391.08,
making a decrease Of $5,567,393.19 in yearly expenditures in the year 1911
under that of 1910. For the year ending June 30, 1912, the estimated receipts,
exclusive of the postal revenues, are $666,000,000, while the total estimates,
exclusive of those for the Panama Canal and the postal expenditures payable
from the postal revenues, amount to $645,842,799.34. This is a decrease
in the 1912 estimates from that of the 1911 estimates of $1,534,367-22.

For the year ending June 30, 1913, the estimated receipts, exclusive
of the postal revenues, are $667,000,000, while the total estimated appropriations,
exclusive of the Panama Canal and postal disbursements payable from postal
revenues, will amount to $637,920,803.35. This is a decrease in the 1913
estimates from that of the 1912 estimates of $7,921,995.99.

As to the postal revenues, the expansion of the business in that department,
the normal increase in the Post Office and the extension of the service,
will increase the outlay to the SUM Of $260,938,463 ; but as the department
was self-sustaining this year the Postmaster General is assured that next
year the receipts will at least equal the expenditures, and probably exceed
them by more than the surplus of this year. It is fair and equitable, therefore,
in determining the economy with which the Government has been run, to exclude
the transactions of a department like the Post Office Department, which
relies for its support upon its receipts. In calculations heretofore made
for comparison of economy in each year, it has been the proper custom only
to include in the statement the deficit in the Post Office Department which
was paid out of the Treasury.

A calculation of the actual increase in the expenses of Government arising
from the increase in the population and the general expansion of governmental
functions, except those of the Post Office, for a number of years shows
a normal increase of about 4 per cent a year. By directing the exercise
of great care to keep down the expenses and the estimates we have succeeded
in reducing the total disbursements each year.

THE CREDIT OF THE UNITED STATES.

The credit of this Government was shown to be better than that of any
other Government by the sale of the Panama Canal 3 per cent bonds. These
bonds did not give their owners the privilege of using them as a basis
for bank-note circulation, nor was there any other privilege extended to
them which would affect their general market value. Their sale, therefore,
measured the credit of the Government. The premium which was realized upon
the bonds made the actual interest rate of the transaction 2.909 per cent.

EFFICIENCY AND ECONOMY IN THE TREASURY DEPARTMENT.

I In the Treasury Department the efficiency and economy work has been
kept steadily up. Provision is made for the elimination of 134 positions
during the coming year. Two hundred and sixty-seven statutory positions
were eliminated during the last year in the office of the Treasury in Washington,
and 141 positions in the year 1910, making an elimination Of 542 statutory
positions since March 4, 1909; and this has been done without the discharge
of anybody, because the normal resignations and deaths have been equal
to the elimination of the places, a system of transfers having taken care
of the persons whose positions were dropped out. In the field service if
the department, too, 1,259 positions have been eliminated down to the present
time, making a total net reduction of all Treasury positions to the number
of 1,801. Meantime the efficiency of the work of the departmeat has increased.

MONETARY REFORM.

A matter of first importance that will come before Congress for action
at this session is monetary reform. The Congress has itself arranged an
early introduction of this great question through the report of its Monetary
Commission. This commission was appointed to recommend a solution of the
banking and currency problems so long confronting the Nation and to furnish
the facts and data necessary to enable the Congress to take action. The
commission was appointed when an impressive and urgent popular demand for
legislative relief suddenly arose out of the distressing situation of the
people caused by the deplorable panic of 1907. The Congress decided that
while it could not give immediately the relief required, it would provide
a commission to furnish the means for prompt action at a later date.

In order to do its work with thoroughness and precision this commission
has taken some time to make its report. The country is undoubtedly hoping
for as prompt action on the report as the convenience of the Congress can
permit. The recognition of the gross imperfections and marked inadequacy
of our banking and currency system even in our most quiet financial periods
is of long standing; and later there has matured a recognition of the fact
that our system is responsible for the extraordinary devastation, waste,
and business paralysis of our recurring periods of panic. Though the members
of the Monetary Commission have for a considerable time been working in
the open, and while large numbers of the people have been openly working
with them, and while the press has largely noted and discussed this work
as it has proceeded, so that the report of the commission promises to represent
a national movement, the details of the report are still being considered.
I can not, therefore, do much more at this time than commend the immense
importance of monetary reform, urge prompt consideration and action when
the commission's report is received, and express my satisfaction that the
plan to be proposed promises to embrace main features that, having met
the approval of a great preponderance of the practical and professional
opinion of the country, are likely to meet equal approval in Congress.

It is exceedingly fortunate that the wise and undisputed policy of maintaining
unchanged the main features of our banking system rendered it at once impossible
to introduce a central bank; for a central bank would certainly have been
resisted, and a plan into which it could have been introduced would probably
have been defeated. But as a central bank could not be a part of the only
plan discussed or considered, that troublesome question is eliminated.
And ingenious and novel as the proposed National Reserve Association appears,
it simply is a logical outgrowth of what is best in our present system,
and is, in fact, the fulfillment of that system.

Exactly how the management of that association should be organized is
a question still open. It seems to be desirable that the banks which would
own the association should in the main manage it, It will be an agency
of the banks to act for them, and they can be trusted better than anybody
else chiefly to conduct it. It is mainly bankers' work. But there must
be some form of Government supervision and ultimate control, and I favor
a reasonable representation of the Government in the management. I entertain
no fear of the introduction of politics or of any undesirable influences
from a properly measured Government representation.

I trust that all banks of the country possessing the requisite standards
will be placed upon a footing of perfect equality of opportunity. Both
the National system and the State system should be fairly recognized, leaving
them eventually to coalesce if that shall prove to be their tendency. But
such evolution can not develop impartially if the banks of one system are
given or permitted any advantages of opportunity over those of the other
system. And I trust also that the new legislation will carefully and completely
protect and assure the individuality and the independence of each bank,
to the end that any tendency there may ever be toward a consolidation of
the money or banking power of the Nation shall be defeated.

It will always be possible, of course, to correct any features of the
new law which may in practice prove to be unwise; so that while this law
is sure to be enacted under conditions of unusual knowledge and authority,
it also will include, it is well to remember, the possibility of future
amendment.

With the present prospects of this long-awaited reform encouraging us,
it would be singularly unfortunate if this monetary question should by
any chance become a party issue. And I sincerely hope it will not. The
exceeding amount of consideration it has received from the people of the
Nation has been wholly nonpartisan; and the Congress set its nonpartisan
seal upon it when the Monetary Commission was appointed. In commending
the question to the favorable consideration of Congress, I speak for, and
in the spirit of, the great number of my fellow citizens who without any
thought of party or partisanship feel with remarkable earnestness that
this reform is necessary to the interests of all the people.

THE WAR DEPARTMENT.

There is now before Congress a Dill, the purpose of which is to increase
the efficiency and decrease the expense of the Army. It contains four principal
features: First, a consolidation of the General Staff with the Adjutant
General's and the Inspector General's Departments; second, a consolidation
of the Quartermaster's Department with the Subsistence and the Pay Departments;
third, the creation of an Army Service Corps; and fourth, an extension
of the enlistment period from three to five years.

With the establishment of an Army Service Corps, as proposed in the
bill, I am thoroughly in accord and am convinced that the establishment
of such a corps will result in a material economy and a very great increase
of efficiency in the Army. It has repeatedly been recommended by me and
my predecessors. I also believe that a consolidation of the Staff Corps
can be made with a resulting increase in efficiency and economy, but not
along the lines provided in the bill under consideration.

I am opposed to any plan the result of which would be to break up or
interfere with the essential principles of the detail system in the Staff
Corps established by the act of February 2, 1901, and I am opposed to any
plan the result of which would be to give to the officer selected as Chief
of Staff or to any other member of the General Staff Corps greater permanency
of office than he now has. Under the existing law neither the Chief. of
Staff nor any other member of the General Staff Corps can remain in office
for a period of more than four years, and there must be an interval of
two years between successive tours of duty.

The bill referred to provides that certain persons shall become permanent
members of the General Staff Corps, and that certain others are subject
to redetail without an interval of two years. Such provision is fraught
with danger to the welfare of the Army, and
would practically nullify the main purpose of the law creating the

In making the consolidations no reduction should be made in the total
number of officers of the Army, of whom there are now too few to perform
the duties imposed by law. I have in the past recommended an increase in
the number of officers by 6oo in order to provide sufficient officers to
perform all classes of staff duty and tc reduce the number of line officers
detached from their commands. Congress at the last session increased the
total number of officers by 2oo, but this is not enough. Promotion in the
line of the Army is too slow. Officers do not attain command rank at an
age early enough properly to exercise it. It would be a mistake further
to retard this already slow promotion by throwing back into the line of
the Arm a number of high-ranking officers to be absorbed as is rovided
in the

Another feature of the bill which I believe to be a mistake is the proposed
increase in the term of enlistment from three to five ears I believe it
would be better to enlist men for six years, release them at the end of
three years from active service, and put them in reserve for the remaining
three years. Reenlistments should be largely confined to the noncommissioned
officers and other enlisted men in the skilled grades. This plan by the
payment of a comparatively small compensation during the three years of
reserve, would keep a large bodv of men at the call of the Government,
trained and ready for

The Army of the United States is in good condition. It showed itself
able to meet an emergency in the successful mobilization of an army division
of from i5,ooo to :2o,ooo men, which took place along the border of Mexico
during the recent disturbances in that country. The marvelous freedom from
the ordinary camp diseases of typhoid fever and measles is referred to
in the report of the Secretary of War and shows such an effectiveness in
the sanitary regulations and treatment of the Medical Corps, and in the
discipline of the Army itself, as to invoke the highest commendation.

MEMORIAL AMPHITHEATER AT ARLINGTON.

I beg to renew my recommendation of last year that the Congress appropriate
for a memorial amphitheater at Arlington, Va., the funds required to construct
it upon the plans already approved.

THE PANAMA CANAL.

The very satisfactory progress made on the Panama Canal last year has
continued, and there is every reason to believe that the canal
will be completed as early as the 1st of July, 1913, unless something
unforeseen occurs. This is about 18 months before the time promised by
the engineers.

We are now near enough the completion of the canal to make it imperatively
necessary that legislation should be enacted to fix the method by which
the canal shall be maintained and controlled and the zone governed. The
fact is that to-day there is no statutory law by authority of which the
President is maintaining the government of the zone. Such authority was
given in an amendment to the Spooner Act, which expired by the terms of
its own limitation some years ago. Since that time the government has continued,
under the advice of the Attorney General that in the absence of action
by Congress, there is necessarily an implied authority on the part of the
Executive to maintain a government in a territory in which he has to see
that the laws are executed. The fact that we have been able thus to get
along during the important days of construction without legislation expressly
formulating the government of the zone, or delegating the creation of it
to the President, is not a reason for supposing that we may continue the
same kind of a government after the construction is finished. The implied
authority of the President to maintain a civil government in the zone may
be derived from the mandatory direction given him in the original Spooner
Act, by which he was commanded to build the canal; but certainly, now that
the canal is about to be completed and to be put under a permanent management,
there ought to be specific statutory authority for its regulation and control
and for the government of the zone, which we hold for the chief and main
purpose of operating the canal.

I fully concur with the Secretary of War that the problem is simply
the management of a great public work, and not the government of a local
republic; that every provision must be directed toward the successful maintenance
of the canal as an avenue of commerce, and that all provisions for the
government of those who live within the zone should be subordinate to the
main purpose.

The zone is 40 miles long and 10 miles wide. Now, it has a population
Of 50,000 or 60,000, but as soon as the work of construction is completed,
the towns which make up this population will be deserted, and only comparatively
few natives will continue their residence there. The control of them ought
to approximate a military government. One judge and two justices of the
peace will be sufficient to attend to all the judicial and litigated business
there is. With a few fundamental laws of Congress, the zone should be governed
by the orders of the President, issued through the War Department, as it
is today. Provisions can be made for the guaranties of life, liberty, and
property, but beyond those, the government should be that of a military
reservation, managed in connection with this great highway of trade.

FURNISHING SUPPLIES AND REPAIRS.

In my last annual message I discussed at length the reasons for the
Government's assuming the task of furnishing to all ships that use the
canal, whether our own naval vessels or others, the supplies of coal and
oil and other necessities with which they must be replenished either before
or after passing through the canal, together with the dock facilities and
repairs of every character. This it is thought wise to do through the Government,
because the Government must establish for itself, for its own naval vessels,
large depots and dry docks and warehouses, and these may easily be enlarged
so as to secure to the world public using the canal reasonable prices and
a certainty that there will be no discrimination between those who wish
to avail themselves of such facilities.

TOLLS.

I renew my recommendation with respect to the tolls of the canal that
within limits, which shall seem wise to Congress, the power of fixing tolls
be given to the President. In order to arrive at a proper conclusion, there
must be some experimenting, and this can not be done if Congress does not
delegate the power to one who can act expeditiously.

POWER EXISTS TO RELIEVE AMERICAN SHIPPING.

I am very confident that the United States has the power to relieve
from the payment of tolls any part of our shipping that Congress deems
wise. We own the canal. It was our money that built it. We have the right
to charge tolls for its use. Those tolls must be the same to everyone;
but when we are dealing with our own ships, the practice of many Governments
of subsidizing their own merchant vessels is so well established in general
that a subsidy equal to the tolls, an equivalent remission of tolls, can
not be held to be a discrimination in the use of the canal. The practice
in the Suez Canal makes this clear. The experiment in tolls to be made
by the President would doubtless disclose how great a burden of tolls the
coastwise trade between the Atlantic and the Pacific coast could bear without
preventing its usefulness in competition with the transcontinental railroads.
One of the chief reasons for building the canal was to set up this competition
and to bring the two shores closer together as a practical trade problem.
It may be that the tolls will have to be wholly remitted. I do not think
this is the best principle, because I believe that the cost of such a Government
work as the Panama Canal ought to be imposed gradually but certainly upon
the trade which it creates and makes possible. So far as we can, consistent
with the development of the world's trade through the canal, and the benefit
which it was intended to secure to the east and west coastwise trade, we
ought to labor to secure from the canal tolls a sufficient amount ultimately
to meet the debt which we have assumed and to pay the interest.

THE PHILIPPINE ISLANDS.

In respect to the Philippines, I urgently join in the recommendation
of the Secretary of War that the act of February 6, 1905, limiting the
indebtedness that may be incurred by the Philippine Government for the
construction of public works, be increased from $5,000,000 to $15,ooo,ooo.
The finances of that Government are in excellent condition. The maximum
sum mentioned is quite low as compared with the amount of indebtedness
of other governments with similar resources, and the success which has
attended the expenditure of the $5,000,000 in the useful improvements of
the harbors and other places in the Islands justifies and requires additional
expenditures for like purposes.

NATURALIZATION.

I also join in the recommendation that the legislature of the Philippine
Islands be authorized to provide for the naturalization of Filipinos and
others who by the present law are treated as aliens, so as to enable them
to become citizens of the Philippine Islands.

FRIARS' LANDS.

Pending an investigation by Congress at its last session, through one
of its committees, into the disposition of the friars' lands, Secretary
Dickinson directed that the friars' lands should not be sold in excess
of the limits fixed for the public lands until Congress should pass upon
the subject or should have concluded its investigation. This order has
been an obstruction to the disposition of the lands, and I expect to direct
the Secretary of War to return to the practice under the opinion of the
Attorney General which will enable us to dispose of the lands much more
promptly, and to prepare a sinking fund with which to meet the $7,000,000
of bonds issued for the purchase of the lands. I have no doubt whatever
that the Attorney General's construction was a proper one, and that it
is in the interest of everyone that the land shall be promptly disposed
of. The danger of creating a monopoly of ownership in lands under the statutes
as construed is nothing. There are only two tracts of 60,000 acres each
unimproved and in remote Provinces that are likely to be disposed of in
bulk, and the rest of the lands are subject to the limitation that they
shall be first offered to the present tenants and lessors who hold them
in small tracts.

RIVERS AND HARBORS.

The estimates for the river and harbor improvements reach $32,000,000
for the coming year. I wish to urge that whenever a project has been adopted
by Congress as one to be completed, the more money which can be economically
expended in its construction in each year, the greater the ultimate economy.
This has especial application to the improvement of the Mississippi River
and its large branches. It seems to me that an increase in the amount-
of money now being annually expended in the improvement of the Ohio River
which has been formally adopted by Congress would be in the interest of
the public. A similar change ought to be made during the present Congress,
in the amount to be appropriated for the Missouri River. The engineers
say that the cost of the improvement of the Missouri River from Kansas
City to St. Louis, in order to secure 6 feet as a permanent channel, will
reach $20,000,000. There have been at least three recommendations from
the Chief of Engineers that if the improvement be adopted, $2,000,000 should
be expended upon it annually. This particular improvement is especially
entitled to the attention of Congress, because a company has been organized
in Kansas City, with a capital of $1,000,000, which has built steamers
and barges, and is actually using the river for transportation in order
to show what can be done in the way of affecting rates between Kansas City
and St. Louis, and in order to manifest their good faith and confidence
in respect of the improvement. I urgently recommend that the appropriation
for this improvement be increased from $600,000, as recommended now in
the completion of a contract, to $2,000,000 annually, so that the work
may be done in 10 years.

WATERWAY FROM THE LAKES TO THE GULF.

The project for a navigable waterway from Lake Michigan to the mouth
of the Illinois River, and thence via the Mississippi to the Gulf of Mexico,
is one of national importance. In view of the work already accomplished
by the Sanitary District of Chicago, an agency of the State of Illinois,
which has constructed the most difficult and costly stretch of this waterway
and made it an asset of the Nation, and in view of the fact that the people
of Illinois have authorized the expenditure Of $20,000,000 to carry this
waterway 62 miles farther to Utica, I feel that it is fitting that this
work should be supplemented by the Government, and that the expenditures
recommended by the special board of engineers on the waterway from Utica
to the mouth of the Illinois River be made upon lines which while providing
a waterway for the Nation should otherwise benefit that State to the fullest
extent. I recommend that the term of service of said special board of engineers
be continued, and that it be empowered to reopen the question of the treatment
of the lower Illinois River, and to negotiate with a properly constituted
commission representing the State of Illinois, and to agree upon a plan
for the improvement of the lower Illinois River and upon the extent to
which the United States may properly cooperate with the State of Illinois
in securing the construction of a navigable waterway from Lockport to the
mouth of the Illinois River in conjunction with the development of water
power by that State between Lockport and Utica.

THE DEPARTMENT OF JUSTICE.
Removal of clerks of Federal courts.

The report of the Attorney General shows that he has subjected to close
examination the accounts of the clerks of the Federal courts; that he has
found a good many which disclose irregularities or dishonesty; but that
he has had considerable difficulty in securing an effective prosecution
or removal of the clerks thus derelict. I am certainly not unduly prejudiced
against the Federal courts, but the fact is that the long and confidential
relations which grow out of the tenure for life on the part of the judge
and the practical tenure for life on the part of the clerk are not calculated
to secure the strictness of dealing by the judge with the clerk in respect
to his fees and accounts which assures in the clerk's conduct a freedom
from overcharges and carelessness. The relationship between the judge and
the clerk makes it ungracious for members of the bar to complain of the
clerk or for department examiners to make charges against him to be heard
by the court, and an order of removal of a clerk and a judgment for the
recovery of fees are in some cases reluctantly entered by the judge. For
this reason I recommend an amendment to the law whereby the President shall
be given power to remove the clerks for cause. This provision need not
interfere with the right of the judge to appoint his clerk or to remove
him.

French spoliation awards.

In my last message, I recommended to Congress that it authorize the
payment of the findings or judgments of the Court of Claims in the matter
of the French spoliation cases. There has been no appropriation to pay
these judgments since 1905. The findings and awards were obtained after
a very bitter fight, the Government succeeding in about 75 per cent of
the cases. The amount of the awards ought, as a matter of good faith on
the part of the Government, to be paid.

EMPLOYERS' LIABILITY AND WORKMEN'S COMPENSATION COMMISSION.

The limitation of the liability of the master to his servant for personal
injuries to such as are occasioned by his fault has been abandoned in most
civilized countries and provision made whereby the employee injured in
the course of his employment is compensated for his loss of working ability
irrespective of negligence. The principle upon which such provision proceeds
is that accidental injuries to workmen in modern industry, with its vast
complexity and inherent dangers arising from complicated machinery and
the use of the great forces of steam and electricity, should be regarded
as risks of the industry and the loss borne in some equitable proportion
by those who for their own profit engage therein. In recognition of this
the last Congress authorized the appointment of a commission to investigate
the subject of employers' liability and workmen's compensation and to report
the result of their investigations, through the President, to Congress.
This commission was appointed and has been at work, holding hearings, gathering
data, and considering the subject, and it is expected will be able to report
by the first of the year, in accordance with the provisions of the law.
It is hoped and expected that the commission will suggest legislation which
will enable us to put in the place of the present wasteful and sometimes
unjust system of employers' liability a plan of compensation which will
afford some certain and definite relief to all employees who are injured
in the course of their employment in those industries which are subject
to the regulating power of Congress.

MEASURES TO PREVENT DELAY AND UNNECESSARY COST OF LITIGATION.

In promotion of the movement for the prevention of delay and unnecessary
cost, in litigation, I am glad to say that the Supreme Court has taken
steps to reform the present equity rules of the Federal courts, and that
we may in the near future expect a revision of them which will be a long
step in the right direction.

The American Bar Association has recommended to Congress several bills
expediting procedure, one of which has already passed the House unanimously,
February 6, 1911. This directs that no judgment should be set aside or
reversed, or new trial granted, unless it appears to the court, after an
examination of the entire cause, that the error complained of has injuriously
affected the substantial rights of the parties, and also provides for the
submission of issues of fact to a jury, reserving questions of law for
subsequent argument and decision. I hope this bill will pass the Senate
and become law, for it will simplify the procedure at law.

Another bill to amend chapter II of the judicial Code, in order to avoid
errors in pleading, was presented by the same association, and one. enlarging
the jurisdiction of the Supreme Court so as to permit that court to examine,
upon a writ of error, all cases in which any right or title is claimed
under the Constitution, or any statute or treaty of the United States,
whether the decision in the court below has been against the right or title
or in its favor. Both these measures are in the interest of justice and
should be passed.

POST OFFICE.

At the beginning of the present administration in 1909 the postal service
was in arrears to the extent Of $17,479,770.47. It was very much the largest
deficit on record. In the brief space of two years this has been turned
into a surplus Of $220,000, which has been accomplished without curtailment
of the postal facilities, as may be seen by the fact that there have been
established 3,744 new post offices; delivery by carrier has been added
to the service in 186 cities; 2,516 new rural routes have been established,
covering 60,000 miles; the force of postal employees has been increased
in these two years by more than 8,000, and their average annual salary
has had a substantial increase.

POSTAL-SAVINGS SYSTEM.

On January 3, 1911, postal-savings depositories were established experimentally
in 48 States and Territories. After three months' successful operation
the system was extended as rapidly as feasible to the 7,500 Post offices
of the first, second, and third classes constituting the presidential grade.
By the end of the year practically all of these will have been designated
and then the system will be extended to all fourth-class post offices doing
a money-order business.

In selecting post offices for depositories consideration was given to
the efficiency of the postmasters and only those offices where the ratings
were satisfactory to the department have been designated. Withholding designation
from postmasters with unsatisfactory ratings has had a salutary effect
on the service.

The deposits have kept pace with the extension of the system. Amounting
to only $60,652 at the end of the first month's operation in the experimental
offices, they increased to $679,310 by July, and now after 11 months of
operation have reached a total of $ 11,000,000. This sum is distributed
among 2,71o banks and protected tinder the law by bonds deposited with
the Treasurer of the United States.

Under the method adopted for the conduct of the system certificates
are issued as evidence of deposits, and accounts with depositors are kept
by the post offices instead of by the department. Compared with the practice
in other countries of entering deposits in pass books and keeping at the
central office a ledger account with each depositor, the use of the certificate
has resulted in great economy of administration.

The depositors thus far number approximately 150,000. They include 40
nationalities, native Americans largely predominating and English and Italians
coming next.

The first conversion of deposits into United States bonds bearing interest
at the rate of 2.5 per cent occurred on July 1, 1911, the amount of deposits
exchanged being $41,900, or a little more than 6 per cent of the total
outstanding certificates of deposit on June 30. Of this issue, bonds to
the value of $6,120 were in coupon form and $35,780 in registered form.

PARCEL POST.

Steps should be taken immediately for the establishment of a rural parcel
post. In the estimates of appropriations needed for the maintenance of
the postal service for the ensuing fiscal year an item of $150,000 has
been inserted to cover the preliminary expense of establishing a parcel
post on rural mail routes, as well as to cover an investigation having
for its object the final establishment of a general parcel post on all
railway and steamboat transportation routes. The department believes that
after the initial expenses of establishing the system are defrayed and
the parcel post is in full operation on the rural routes it will not only
bring in sufficient revenue to meet its cost, but also a surplus that can
be utilized in paying the expenses of a parcel post in the City Delivery
Service.

It is hoped that Congress will authorize the immediate establishment
of a limited parcel post on such rural routes as may be selected, providing
for the delivery along the routes of parcels not exceeding eleven pounds,
which is the weight limit for the international parcel post, or at the
post office from which such route emanates, or on another route emanating
from the same office. Such preliminary service will prepare the way for
the more thorough and comprehensive inquiry contemplated in asking for
the appropriation mentioned, enable the department to gain definite information
concerning the practical operation of a general system, and at the same
time extend the benefit of the service to a class of people who, above
all others, are specially in need of it.

The suggestion that we have a general parcel post has awakened great
opposition on the part of some who think that it will have the effect to
destroy the business of the country storekeeper. Instead of doing this,
I think the change will greatly increase business for the benefit of all.
The reduction in the cost of living it will bring about ought to make its
coming certain.

THE NAVY DEPARTMENT.

On the 2d of November last, I reviewed the fighting fleet of battleships
and other vessels assembled in New York Harbor, consisting of 24 battleships,
2 armored cruisers, 2 cruisers, 22 destroyers, 12 torpedo boats, 8 submarines,
and other attendant vessels, making 98 vessels of all classes, of a tonnage
Of 576,634 tons. Those who saw the fleet were struck with its preparedness
and with its high military efficiency. All Americans should be proud of
its personnel.

The fleet was deficient in the number of torpedo destroyers, in cruisers,
and in colliers, as well as in large battleship cruisers, which are now
becoming a very important feature of foreign navies, notably the British,
German, and Japanese.

The building plan for this year contemplates two battleships and two
colliers. This is because the other and smaller vessels can be built much
more rapidly in case of emergency than the battleships, and we certainly
ought to continue the policy of two battleships a year until after the
Panama Canal is finished and until in our first line and in our reserve
line we can number 40 available vessels of proper armament and size.

The reorganization of the Navy and the appointment of four aids to the
Secretary have continued to demonstrate their usefulness. It would be difficult
now to administer the affairs of the Navy without the expert counsel and
advice of these aids, and I renew the recommendation which I made last
year, that the aids be recognized by statute.

It is certain that the Navy, with its present size, should have admirals
in active command higher than rear admirals. The recognized grades in order
are: Admiral of the fleet, admiral, vice admiral, and rear admiral. Our
great battleship fleet is commanded by a rear admiral, with four other
rear admirals under his orders. This is not as it should be, and when questions
of precedence arise between our naval officers and those of European navies,
the American rear admiral, though in command of ten times the force of
a foreign vice admiral, must yield precedence to the latter. Such an absurdity
ought not to prevail, and it can be avoided by the creation of two or three
positions of flag rank above that of rear admiral.

I attended the opening of the new training school at North Chicago,
Ill., and am glad to note the opportunity which this gives for drawing
upon young men of the country from the interior, from farms, stores, shops,
and offices, which insures a high average of intelligence and character
among them, and which they showed in the very wonderful improvement in
discipline and drill which only a few short weeks' presence at the naval
station had made.

I invite your attention to the consideration of the new system of detention
and of punishment for Army and Navy enlisted men which has obtained in
Great Britain, and which has made greatly for the better control of the.
men. We should adopt a similar system here.

Like the Treasury Department and the War Department, the Navy Department
has given much attention to economy in administration, and has cut down
a number of unnecessary expenses and reduced its estimates except for construction
and the increase that that involves.

I urge upon Congress the necessity for an immediate increase of 2,000
men in the enlisted strength of the Navy, provided for in the estimates.
Four thousand more are now needed to man all the available vessels.

There are in the service to-day about 47,750 enlisted men of all ratings.

Careful computation shows that in April, 1912, 49,166 men will be required
for vessels in commission, and 3,000 apprentice seamen should be kept under
training at all times.

ABOLITION OF NAVY YARDS.

The Secretary of the Navy has recommended the abolition of certain of
the smaller and unnecessary navy yards, and in order to furnish a complete
and comprehensive report has referred the question of all navy yards to
the joint board of the Army and Navy. This board will shortly make its
report and the Secretary of the Navy advises me that his recommendations
on the subject will be presented early in the coming year. The measure
of economy contained in a proper handling of this subject is so great and
so important to the interests of the Nation that I shall present it to
Congress as a separate subject apart from my annual message. Concentration
of the necessary work for naval vessels in a few navy yards on each coast
is a vital necessity if proper economy in Government expenditures is to
be attained.

AMALGAMATION OF STAFF CORPS IN THE NAVY.

The Secretary of the Navy is striving to unify the various corps of
the Navy to the extent possible and thereby stimulate a Navy spirit as
distinguished from a corps spirit. In this he has my warm support.

All officers are to be naval officers first and specialists afterwards.
This means that officers will take up at least one specialty, such as ordnance,
construction, or engineering. This is practically what is done now, only
some of the specialists, like the pay officers and naval constructors,
are not of the line. It is proposed to make them all of the line.

All combatant corps should obviously be of the line. This necessitates
amalgamating the pay officers and also those engaged in the technical work
of producing the finished ship. This is at present the case with the single
exception of the naval constructors, whom it is now proposed to amalgamate
with the line.

COUNCIL OF NATIONAL DEFENSE.

I urge again upon Congress the desirability of establishing the council
of national defense. The bill to establish this council was before Congress
last winter, and it is hoped that this legislation will pass during the
present session. The purpose of the council is to determine the general
policy of national defense and to recommend to Congress and to the President
such measures relating to it as it shall deem necessary and expedient.

No such machinery is now provided by which the readiness of the Army
and Navy may be improved and the programs of military and naval requirements
shall be coordinated and properly scrutinized with a view of the necessities
of the whole Nation rather than of separate departments.

DEPARTMENTS OF AGRICULTURE AND COMMERCE AND LABOR.

For the consideration of matters which are pending or have been disposed
of in the Agricultural Department and in the Department of Commerce and
Labor, I refer to the very excellent reports of the Secretaries of those
departments. I shall not be able to submit to Congress until after the
Christmas holidays the question of conservation of our resources arising
in Alaska and the West and the question of the rate for second-class mail
matter in the Post Office Department.

COMMISSION ON EFFICIENCY AND ECONOMY.

The law does not require the submission of the reports of the Commission
on Economy and Efficiency until the 31st of December. I shall therefore
not be able to submit a report of the work of that commission until the
assembling of Congress after the holidays.

CIVIL RETIREMENT AND CONTRIBUTORY PENSION SYSTEM.

I have already advocated, in my last annual message, the adoption of
a civil-service retirement system, with a contributory feature to it so
as to reduce to a minimum the cost to the Government of the pensions to
be paid. After considerable reflection, I am very much opposed to a pension
system that involves no contribution from the employees. I think the experience
of other governments justifies this view; but the crying necessity for
some such contributory system, with possibly a preliminary governmental
outlay, in order to cover the initial cost and to set the system going
at once while the contributions are accumulating, is manifest on every
side. Nothing will so much promote the economy and efficiency of the Government
as such a system.

ELIMINATION OF ALL LOCAL OFFICES FROM POLITICS.

I wish to renew again my recommendation that all the local offices throughout
the country, including collectors of internal revenue, collectors of customs,
postmasters of all four classes, immigration commissioners and marshals,
should be by law covered into the classified service, the necessity for
confirmation by the Senate be removed, and the President and the others,
whose time is now taken up in distributing this patronage under the custom
that has prevailed since the beginning of the Government in accordance
with the recommendation of the Senators and Congressmen of the majority
party, should be relieved from this burden. I am confident that such a
change would greatly reduce the cost of administering the Government, and
that it would add greatly to its efficiency. It would take away the power
to use the patronage of the Government for political purposes. When officers
are recommended by Senators and Congressmen from political motives and
for political services rendered, it is impossible to expect that while
in office the appointees will not regard their tenure as more or less dependent
upon continued political service for their patrons, and no regulations,
however stiff or rigid, will prevent this, because such regulations, in
view of the method and motive for selection, are plainly inconsistent and
deemed hardly worthy of respect.